CITY OF NEW YORK 


Board of Estimate 
and Apportionment 


PROGRESS REPORT OF A SPECIAL 
COMMITTEE CONSISTING OF THE 
CHIEF ENGINEER OF THE BOARD 
OF ESTIMATE AND APPORTION¬ 
MENT, THE COMMISSIONER 
OF DOCKS, THE COMMISSIONER 
OF PLANT AND STRUCTURES, 
AND THE ENGINEER OF THE 
BOROUGH OF RICHMOND 


Concerning 

THE NEGOTIATIONS WITH THE TRUNK LINE 
RAILROAD COMPANIES WITH RESPECT TO 
THE BROOKLYN-RICHMOND FREIGHT AND 
PASSENGER TUNNEL PROJECT 

AND THE 

ELEMENTS OF DIFFERENCE 
BETWEEN THE 

NARROWS TUNNEL AND PORT AUTHORITY PLANS 


JANUARY TWENTY-THREE, NINETEEN TWENTY-TWO 















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CITY OF NEW YORK 

" ' $X#Vr'Y'MPf'^ 1> ihxLo* . )t, Ctsy\$ 4'^JU»V ,, • 

Board of Estimate 
and Apportionment 


PROGRESS REPORT OF A SPECIAL 
COMMITTEE CONSISTING OF THE 
CHIEF ENGINEER OF THE BOARD 
* OF ESTIMATE AND APPORTION¬ 
MENT, THE COMMISSIONER 
OF DOCKS, THE COMMISSIONER 
OF PLANT AND STRUCTURES, 
AND THE ENGINEER OF THE 
BOROUGH OF RICHMOND 


Concerning 

THE NEGOTIATIONS WITH THE TRUNK LINE 
RAILROAD COMPANIES WITH RESPECT TO 
THE BROOKLYN-RICHMOND FREIGHT AND 
PASSENGER TUNNEL PROJECT 

AND THE 

ELEMENTS OF DIFFERENCE 
BETWEEN THE 

NARROWS TUNNEL AND PORT AUTHORITY PLANS 



JANUARY TWENTY-THREE, NINETEEN TWENTY-TWO 







CONTENTS. 


A 

r* 


e 

i L 

PAGE 

Report of Special Committee . 5 

Report of Consulting Engineer, William J. Wilgus . 7 

Frontispiece (map) .facing 7 

Introduction . 7 

I. Necessity for Relief . S 

II. Authority for Comprehensive Plans of Relief . 13 

III. The Narrows Tunnel Preferable to the Port Authority Plan . 15 

Narrows Tunnel Plan . 16 

Port Authority Plan . 20 

Preferable Plan . 24 

IV. Estimated Savings . 25 

Volume of Traffic . 25 

Costs and Savings per Car . 27 

Estimated Annual Savings . 28 

Net Savings as of 1926 . 30 

V. Justifiability of the Project .. ,... . 31 

Preliminary Costs of Construction'...-:..-....... . 31 

Surplus over Fixed Charges on new investment. 32 

Additional Advantages ..;. 32 

VI. Conclusions ..". '. . . .■ .. . 33 

Tables . 35 

A — Tonnages and Cars—-1921 . 35 

B — Costs per Car — Present Methods . 37 

C — Operating Costs per Car — Proposed Methods. 38 

D—Savings per Car Applicable to Fixed Charges . 39 

E — Annual Savings . 41 

Senate Bill No. 108 — Proposed amendment to Narrows Tunnel Act. 43 

Senate Bill No. 41 — Proposed amendment to Port Authority Act . 50 

Map showing Contrasting Features of the Two Projects . 63 

Map of Project reported to Board of Estimate and Apportionment 


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CITY OF NEW YORK. 

Board of Estimate and Apportionment. 

January 23, 1922. 

Hon. John F. Hylan, 

Mayor. 

Sir: 

In compliance with the directions given by the Board of Estimate and 
Apportionment at its meeting of January 20, 1922, your Committee on 
Negotiations with representatives of the trunk line railroad companies in the 
matter of the development of a plan for the joint use by all of the railroads 
of the facilities which should be made available by the proposed tunnel under 
the Narrows, the construction, of which was directed by the Legislature 
through its enactment of Chapter 700 of the Laws of 1921, submits the 
following progress report: 

With our report of October 15, 1921, which was presented at the 
Board meeting of October 21, 1921, there was submitted a report from the 
Chief Engineer of the Board, accompanied by reports from the Consulting 
Engineers and the Tunnel Engineer, addressed to the Engineering Com¬ 
mittee representing the trunk line railroads entering the Metropolitan Dis¬ 
trict and consisting of the Chief Engineers of these railroads, reviewing the 
investigations which had been made up to that time and presenting, for 
the consideration of that Committee, a plan designed to accomplish the 
desired purpose, which plan was supported by an economic study of the 
project to establish its financial feasibility as a self-supporting enterprise. 

The report of the engineers of the Board was made the subject of a 
conference with the railroad.engineers on October 21, 1921, at which time 
it was agreed that it would be given independent consideration by the 
railroad engineers, and that a further joint engineering conference would 
be held as soon as they had completed their investigation of the project as 
submitted. 

We are informed by the Chief Engineer of the Board of Estimate and 
Apportionment that between that date and January 19, 1922, the railroad 
engineers have held several meetings to consider the matter and that there 
had been presented to them a report prepared by a subcommittee made up 
from their membership, based on the omission of a connection with the 
northerly tier of railroads in New Jersey, and also excluding from considera¬ 
tion the proposed industrial railroad along the Brooklyn waterfront, with 
the effect of decreasing the tonnage and incidentally recasting the economic 
features of the project. Upon receipt of the data used in the preparation 
of this report and, on January 9th, of certain other information deemed 
necessary to a further study of the matter, Consulting Engineer Wilgus 
promptly undertook a more comprehensive analysis of the economic features 
of the project, basing the same upon the carrying out of the entire plan 
as originally proposed and also upon its curtailment as suggested by the sub¬ 
committee representing the railroad engineers. This report was considered 
in a conference between the railroad engineers and the engineering staff 


6 


of the Board of Estimate and Apportionment held on January 19, 1922, at 
which time it was agreed that as soon as copies could be placed in the hands 
of the railroad representatives it would be made the subject of further study 
and of joint conference after they had given it the consideration to which it 
was entitled. 

At this meeting it was brought out that there was no basis whatever for 
the assertions which have been made from time to time in the press to the 
effect that either the railroad engineers or the railroad executives had acted 
adversely on the plan prepared on behalf of the Board of Estimate and 
Apportionment, and that the matter was still under advisement. 

The report of Consulting Engineer Wilgus includes a review of the 
subject from every angle and is presented herewith as setting forth the 
status of the project at the present time. 

In accordance with instructions, your Committee is also presenting with 
this report a copy of Senate Bill No. 108, prepared pursuant to the directions 
given by the Board and introduced by Senator Smith, making provision for 
amending Chapter 700 of the Laws of 1921 in such a way as to broaden the 
power of the City in the matter of carrying out the Narrows Tunnel project. 
This bill has also been introduced in the Assembly by Assemblyman Cosgrove 
as No. 131. 

There is also presented a copy of Senate Bill No. 41, introduced by 
Senator Meyer, providing for the adoption of what is described as “The 
Comprehensive Plan for the Development of the Port of New York,” as 
prepared by the Port Authority. This bill has been introduced in the 
Assembly by Assemblyman Mastick as No. 129. Particular attention is 
called to the provision made in this measure for giving the Port Authority 
the status of a “ municipal corporate instrumentality of the two states for the 
purpose of developing the port,” which is unquestionably designed to relieve 
the Port Authority from the payment of taxes on property which it may 
acquire. 

We are also submitting a map showing the location proposed for the 
Belt Line Railroad and for the Narrows Tunnel, as well as the suggested 
industrial railroads along the New York City waterfront, and a map show¬ 
ing the more important elements of difference between the project recom¬ 
mended by the Port Authority and the one which has been reported to your 
Board by its engineering staff. 

Respectfully submitted, 

ARTHUR S. TUTTLE, 

Chief Engineer, 

Board of Estimate and Apportionment. 
JOHN H. DELANEY, 

Commissioner of Docks. 

GROVER A. WHALEN, 

Commissioner of Plant and Structures. 
THEODOR S.' OXHOLM, 

Engineer, Borough of Richmond. 


MAP SHOWING NARROWS TUNNEL 
AND PORT AUTHORITY ROUTES. 


rrnnurmi Harrows Tunnel Route, Existing 
mi mi ini >* » » , Proposed 

“ " " , Connections 



MAP SHOWING NARROWS TUNNEL AND PORT AUTHORITY ROUTES. 











































7 


January 18, 1922. 


Mr. Arthur S. Tuttle, 

Chief Engineer, Board of Estimate and Apportionment, 
Municipal Building, New York, N. Y. 


Dear Sir: 

The subjoined rather voluminous analysis of the merits of the Narrows 
tunnel plan has been prepared in the belief that it will be helpful at our con¬ 
ferences with the railroads. In it the attempt is made to show why we are 
convinced that something must be done to relieve the existing cross-harbor 
transportation situation, why we feel that the Narrows tunnel provided for 
by law offers the best solution of the problem, why we believe that net sav¬ 
ings through the use of the Narrows tunnel route and numerous other ad¬ 
vantages to carriers, shippers and the general public, including better means 
of military protection in time of war, amply justify the required large ex¬ 
penditure and why we press upon the railroad representatives the desire 
of the City to negotiate with them to the end that an agreement may be 
reached whereby, on equitable terms, this great work may be constructed and 
jointly operated by them in their interest and that of the public. 

The more I consider this project the more I believe in it. Perhaps this- 
feeling is colored by the successful outcome of other momentous enterprises 
in which I have taken a part and it is possible that I have outlived my use¬ 
fulness as a reader of the future. However, I have full confidence that the' 
Narrows tunnel plan, if carried out as here proposed, will no more fail to 
live up to the expectations of its proponents than has been the case with the 
Grand Central and Pennsylvania improvements in this City, or the Detroit 
River tunnel or many other advances in the art of transportation that have 
been of such vast benefit to man. 

The subject is treated under the following captions : 

I. Necessity for Relief. 

II. Authority for Comprehensive Plans of Relief. 

III. The Narrows Tunnel Preferable to the Port Authority Plan. 

IV. Estimated Savings. 

* V. Justifiability of the Project. 

VI. Conclusion. 


8 


I 

NECESSITY FOR RELIEF 

In seeking the best manner in which to cure the transportation ills of the 
Port of New York, we are met at the outset by the claim that the existing 
cross-harbor water and rail facilities, with some improvement from time 
to time, are amply sufficient for the purpose; and that the Narrows tunnel, 
or for that matter any comprehensive plan for an all-rail connection between 
the trunk lines that now terminate in New Jersey and the several boroughs 
of New York City, is unnecessary. 

This plea for the status quo may be best answered by quoting from the 
utterances of various organizations and individuals/taking first those having 
to do with the problem in its broader aspects: 

The New York Chamber of Commerce says “ it is essential to 
the welfare, not only of this city but of the Nation, that all handicaps 
to an efficient port be removed.” 

Our Merchants’ Association, in commenting on what it rightly 
terms “ antiquated ” facilities states that it “ has long viewed with 
great solicitude the inadequate traffic facilities of this Port, which im¬ 
pose a heavy and wasteful burden of charges upon our trade and 
commerce. The conditions are rapidly becoming acute and threaten 
this City with immeasurable damage by the enforced diversion of its 
business to other ports where terminal and port charges are much less 
than here. * * * Year after year the Port is neglected. It is 

the only great port in the world where no intelligent plan has been 
adopted for improvements to enable it to meet the demands upon it.” 

The Brooklyn Chamber of Commerce says “ Immeasurable loss 
will be suffered by the City through diversion of its commerce to 
other ports, if terminal costs are not reduced by improvements in 
terminal facilities.” 

In the proceedings before the Interstate Commerce Commission 
in the matter of rate allowances at New York it was shown that the 
whole organization of the Port fundamentally is wrong and that under 
the unscientific and uneconomic methods practiced by the carriers, 
congestion and expense have become normal conditions, and some 
remedy soon must be found. 

Our daily press is constantly recording cases of prolonged de¬ 
lays or interruptions to our cross-harbor traffic caused by _ fogs, 
storms, ice, high tides .and marine strikes, all of which would be 
obviated by an all-rail service. 

That we cannot remain fatuously contented with existing condi¬ 
tions, if we are to prepare for the future, is pointed out by so weighty 
an authority as General W. W. Atterbury, Vice President of the 
P. R. R., who says: 


9 


“ We ought to be preparing ourselves to take care of the pros¬ 
perity which is sure to come. When it comes' it will come fast. Rail¬ 
road facilities cannot be built overnight. They must be planned 
long in advance; it takes years to build yards, terminals and other 
necessaries. When this big volume of business comes, as it is sure 
to come, and you again begin to offer to the railroads goods to be 
carried in large quantities, and your prosperity depends upon getting 
the goods to market promptly, you will find, unless conditions quickly 
change, the railroads will be unable to carry your goods. 

You will be forced then to say that if private owners do not 
or cannot supply the transportation you need; if they cannot solve 
this problem, you yourselves will have to take over the railroads and 
operate them as a Government proposition, even against your desires 
and your own good judgment. Under the Government it will be 
far more expensive and less responsive to your needs, but time will 
not wait then for a calm decision.” 

Mr. Samuel Rea, President of the P. R. R., states that the use 
of the New York tunnels and passenger station of this company by 
other railroads “ is barred by the fact that the capacity of those 
facilities has been reached, so that it is only a question of time before 
the Baltimore & Ohio and Lehigh Valley railroads can no longer be 
accommodated.” 

The last but not the least of the compelling reasons for an all¬ 
rail connection between the trunk lines in New Jersey and the islands 
and mainland to the east, is the crying need for this means of quick, 
unbroken transportation of troops and military supplies in time of 
war. Many of us who were in France during the World War wit¬ 
nessed the important part that was played by the outer belt line at 
Paris at crucial moments when the saving of a few hours in the 
dispatch of allied troops to the front made all the difference between 
victory and defeat. Moreover, many of us there participated in 
frenzied efforts under the most trying conditions, hurriedly to create 
means of by-passing our war traffic around centers of congestion, as 
for instance at St. Nazaire, Nevers and elsewhere. As patriotic 
Americans we cannot refuse to profit by these experiences. An un¬ 
broken line of transportation, such as we are discussing, some day 
may play a large part in the preservation of our national existence. 

It is clear that a policy of laisses fairc is not admissible if the Port as 
a whole is to hold its own. 

Comments of this nature, however, are not confined to the situation in 
its broader phases, as will be seen from the following examples of many 
expressions of large shippers along the Brooklyn waterfront, when inter¬ 
viewed as to their attitude toward an all-rail connection with the trunk lines 
in New Jersey. 


10 


One says that the rail connection would be “.of supreme benefit 
during the winter time. It would overcome delay due to lighterage 
from New Jersey terminals. In a normal year it takes about ten days, 
on an average, to get a car of freight from Jersey over here.” 

Another states: “ In the last ten years the Port has lost 

50 per cent, of possible trade. It has lost its coffee trade to Baltimore 
and New Orleans. Sugar going through Philadelphia and Baltimore 
can there be brought in for 35 per cent, of the cost in New York. 
Nitrates can be imported at Norfolk and Brunswick for 50 per cent, 
of New York costs. Wood pulp costs 40 cents a ton in Norfolk 
f. o. b., including labor and 15 days’ storage, while here it would 
cost at least $1.00, to be conservative, probably $1.50. Poor terminals 
drive business out of this port.” 

Several engaged in the coal trade comment on the great saving 
that would be effected in rehandlings and consequently in degrada¬ 
tion or breakage of coal, and on the possibility of stabilizing the 
market through storage. 

A varnish manufacturer says, “ substitute turpentine can be 
bought for 5 cents less per gallon in tank cars than in tank wagons 
or drums. Present situation threatens to force removal of con¬ 
cerns elsewhere.” 

A lumber merchant states, “ I believe th'e waterfront railway 
is the only thing that will ever develop this section. Material now 
comes by rail one-third and by water two-thirds—but if the railroad 
was put through the proportion would be reversed.” 

A manufacturer of drop-forgings says, “ w-e have been trying 
to get a car from New Jersey for a week—usually takes 'a week.” 

Another manufacturer, in forcefully expressing his desire for 
direct rail service, stated, “ the history of this part of Brooklyn 
has been that when a plant becomes large it moves to Jersey,” at the 
same time giving concrete examples of such action. 

Another said, “ paint and chemical industries ultimately will 
get out of town unless something is done.” 

Several spoke in favor of an elevated railroad, on account of 
the aid of gravity in discharging inbound raw materials, which are 
largely in excess of outbound shipments. 

Another merchant, shipping 120,000 tons annually, said, “ the 
present system is rotten.” 

The Brooklyn Chamber of Commerce says, “ Brooklyn is suffer¬ 
ing from the handicaps of poor transportation facilities, our industrial 
plants have direct rail connection with only two of the twelve or more 
trunk lines entering the port of New York. There is no community 
with over two million inhabitants in any city in the world that has 
as poor freight and passenger transportation with other parts of its 


11 


country by rail as has Brooklyn. * * * in the four boroughs there 

are more than 3,500,000 people and more than 15,000 factories, em¬ 
ploying approximately 300,000 people. These factories are turning 
out manufactured products for the world’s markets of an estimated 
value of $1,000,000,000.to $1,500,000,000 annually. * * * All of 
the raw material transformed in these factories into finished products 
is shipped in and then shipped out by the present inadequate freight 
terminal and railroad facilities. Yet, with all this vast flow of raw 
material and outgo of manufacturing products, Brooklyn and Queens 
and the Bronx have no direct rail connections with the main trunk line 
railroads to the west and south. * * * As a result this large 

industrial district, with its enormous consumption of raw material 
and output of manufactured products, is almost wholly dependent 
upon carfloats and lighters on the water and motor and horse drawn 
trucks on land for freight transportation. The team track capacity 
of the four terminals located along Brooklyn’s waterfront, where cars 
are brought in by carfloats, is approximately 4,500 cars, a capacity 
which is seriously inadequate in times of heavy traffic, as witnessed 
by the enormous and long continued freight embargoes placed upon 
the yards during the past four years.” 

In general the feeling along the Brooklyn waterfront is to the 
effect that the all-rail route is a decided necessity, if the district is to 
be saved and migration stopped, especially to New Jersey, to which 
removal is now contemplated by several firms. 

Not only does Brooklyn thus voice its demand for an all-rail connection 
with the trunk lines in New Jersey, but similar appeals are being made in 
behalf of New York’s Cinderella borough—Richmond. 

The Merchants’.Association of New York says: “Staten Island, or 
the Borough of Richmond, is one of New York City’s greatest undeveloped 
industrial assets,” possessing “ a combination of advantages which can hardly 
be duplicated anywhere else on the Atlantic seaboard,” and now lying prac¬ 
tically dormant, “ due primarily to the lack of railroad facilities ” and to the 
borough’s “ comparative isolation,” defects which may be removed by build¬ 
ing “ the freight and passenger tunnel under the Narrows, which has already 
been authorized.” 

The Tunnel Committee of the Staten Island Civic League states: 

“ That the City of New York is actively proceeding to build a 
tunnel for freight and passengers between the Borough of Richmond 
and the Borough of Brooklyn. 

“ That the interests of Staten Island, as well as of the Boroughs 
of Brooklyn and Queens, are bound up in the City plan. 

“ That all Staten Island with one voice supports the City plan 
and proposes to do everything possible to hasten and assure the build¬ 
ing of the City tunnel. 


12 


“ That the building of both tunnels would be an economic impos¬ 
sibility, and therefore it is more necessary for Staten Island to insist 
upon the building of the Staten Island tunnel now. 

“ That the plans just disclosed by the Port Authority are not 
comprehensive, in that they make no provision for Staten Island, 
and should therefore be rejected. 

“ That the proposal of the Port Authority to convert the Balti¬ 
more and Ohio lines on Staten Island into a belt line would not 
be an adequate or practical provision for the anticipated enormous 
freight traffic to emanate from the new City piers 1 and from the 
industries on Staten Island. 

“ That the hope of Richmond, Kings and Queens lies in the rejec¬ 
tion of the Port Authority plan and in the carrying through of the 
City plan. 

“ That the Legislature should be urged to equip the City with all 
necessary authority to carry through its plans to build separate freight 
and passenger tunnels, to build a belt line and other railroad con¬ 
nections as may be desirable, to acquire railroads, if necessary, and 
to operate them if this should prove advisable, in order to afford 
opportunity to all railroad systems to participate in and to afford 
adequate freight transportation into and out of the Port of New 
York. 

“ That the Tunnel Committee is prepared in behalf of the Staten 
Island Civic League to wage an active campaign for the speedy build¬ 
ing of the proposed City tunnel under the Narrows and to obtain 
such legislation as may be necessary to enable the City to cam- 
through its plans.” 

One of the large shipping interests on Staten Island says of that 
region’s freight traffic: “ The estimated import, export, domestic and 

local industry freight traffic may be safely put at a yearly total of 
seven million tons. * * * Although a small percentage of 
the above seven million tons of freight is handled for rail movement 
by the Staten Island Rapid Transit Ry. and B. & O., there is no reason 
why the major portion, or at least 60% could not be handled all¬ 
rail, if all class and commodity freight rates were made to corre¬ 
spond with the New York rate basis, or if all points on Staten Island 
were made to operate under the New York rate structure, and if 
the Staten Island roads were either to perform or to absorb the 
terminal services and expense in lieu of the free lighterage now per¬ 
formed by the trunk lines having no direct connection with Staten 
Island, except through the Staten Island Rapid Transit Railway. A 
Union Belt Line Railroad operated for the benefit of all trunk lines 
is therefore the only solution with a division of the through rate 
sufficient to absorb all terminal service on Staten Island, thus making 


13 


the lightering of railroad freight unnecessary. * * * The enor¬ 

mous volume of Staten Island’s freight movement, with the antici¬ 
pated fourteen million tons to be handled over the new City piers, 
totalling 21,000,000 tons, is apparently not realized by the New York 
Port Authority, but is given merited recognition and greatest eco¬ 
nomic importance by the special Tunnel Committee of the Board of 
Estimate and Apportionment of the City of New York.” 

Staten Island unquestionably is entitled to the relief so eloquently de¬ 
manded in these excerpts from responsible sources. This is due not only 
to a borough having such potentialities, but also to the City which must 
look to it for industrial expansion, and to the Port which cannot afford to 
have a large portion of its waterfront permanently doomed to inferior stub- 
end railroad service. 

With these statements before us is it not evident beyond peradventure 
that inaction is not to be thought of, and that the thing to be done is quickly 
to determine the way in which to provide for improved cross-water freight 
and passenger transportation, not alone for the present, but broadly for 
the future to the extent that light may be given us to look ahead. 


II 

AUTHORITY FOR COMPREHENSIVE PLANS OF RELIEF 

In recognition of the demonstrated need of comprehensive plans for 
relieving the present intolerable situation, the Legislature of the State of 
New York passed two laws in 1921. One (Chapter 700), expressly directs 
the Board of Estimate and Apportionment of the City of New York “ to 
construct a tunnel for freight and passenger purposes under New York 
Bay, between the boroughs of Richmond and Brooklyn, by improving and 
increasing the terminal facilities of the City of New York to maintain the 
supremacy of the Port of New York”; such construction to begin within 
two years. The other (Chapters 154 and 203), in harmony with-similar 
legislation passed in New Jersey, provides for a bi-state New York Port 
Authority, empowered to plan facilities for similarly maintaining the 
supremacy of the port. In the former law, usually referred to as the Nar¬ 
rows tunnel act, a specific remedy is prescribed; in the latter the recom¬ 
mendation of a suitable remedy is left to the discretion of the bi-state organ¬ 
ization. 

The Narrows tunnel act provides that in leasing the tunnel the City 
shall receive “ an amount at least sufficient to pay the interest on bonds is¬ 
sued pursuant to this act and to amortize the principal thereof as such in¬ 
terest and principal become due”; in a word the project shall be self-sup¬ 
porting. 


14 


Hence the City, regardless of what may be done by the Port Authority, 
is required by legislative mandate forthwith to build a passenger and freight 
tunnel in a particular place, namely between Staten Island and Long Island, 
and to lease it only on a self-supporting basis. Not only must the City 
create a tunnel in this manner, with the object of maintaining the supremacy 
of the Port of New York; but it perforce must seek customers in order 
that the flow of traffic through the tunnel shall be sufficient to bear the burden 
of interest charges and amortization and thereby relieve the taxpayers from 
the necessity of so doing. 

It is evident that the City officials, in obedience to this mandate, must in 
good faith look beyond the confines of the City for such customers, which 
naturally are the trunk lines now terminating in New Jersey. In beckoning 
to them to come into the city through this new gateway a way must be shown 
to them by which they may most effectively join in reaching it. Not only is 
this course required in order that the provisions of the law may be obeyed, 
but such a course is required by ordinary common sense which dictates that 
the very best results should be striven for in the true interest of the City and 
the Port, even if this does call for negotiations with the only possible users, 
the railroads. After all, the railroads are national carriers and not the ex¬ 
clusive servants of the state in which their terminals happen to lie. The 
City is not permitted to go beyond its boundaries to reach them, but it may 
with propriety invite them to come to the City. In fact under the provisions 
of the law it must do so if the interests of the public are conserved. Cer¬ 
tainly it would be most blameworthy for the City supinely to do nothing to 
carry out the intent of the act as regards the maintenance of the supremacy 
of the port and the protection of the taxpayers, among whom are included 
the railroads themselves, from the burden of an unremunerative investment. 

It will be seen that from the one source of supreme authority in the 
State, the Governor and Legislature, a mandate for the improvement of 
the terminal facilities of the port has simultaneously come forth to two in¬ 
strumentalities, the Port Authority and the City of New York, and that the 
latter is in duty bound to make its plan sufficiently comprehensive to bring 
within its scope the railroads that now terminate on the New Jersey shore of 
the port. 

It is decidedly unpleasant to be called upon to criticise the plans of 
the other of these two agencies, but there is no escaping this duty on the 
part of the representatives of the City, who bear the responsibility of making 
the Narrows tunnel project a success. There is .not a need for both pro- 
j ects; one or the other must be selected. 


15 


III 

THE NARROWS TUNNEL PREFERABLE TO THE PORT 
AUTHORITY PLAN 

The need for radical improvements in our methods' of cross-harbor 
transportation thus having been shown, and authority from the same source 
having been granted for putting them into effect through separate agencies, 
it remains to be determined which of them offers the better plan. 

In doing this it is self-evident that underlying principles must be adopted 
as guides to a wise decision for the public good. Among them the ones 
that are believed to have special force are: 

1. Fixed charges should be the minimum consistent with the ac¬ 
complishment of the desired purpose: (a) through avoidance of 

costly duplicate routes, (b) through utilization of the City’s credit 
for borrowing funds at a low rate of interest,-and (c) through the 
establishment of the route in such manner as to make possible impor¬ 
tant savings in cost of construction through joint action with other 
public enterprises. 

2. Tonnage to and from Staten Island, Long Island and New 
England should be routed around rather than through areas in New 
Jersey that are now or may in the -future become congested by reason 
of their own local freight and passenger development, as for instance 
between the Orange Mountain range and the waterfront. 

3. Crossings of rail and water traffic should be separated 
through the use of tunnels or high level bridges, so that one will not 
interfere with the other. 

4. Use of temporary mainline structures should be avoided on 
account of fire hazard and cost of maintenance. 

5. Gradients on steam operated new lines should be at least 
as light as on the railroads with which they are to connect. 

6. The classification of freight cars and their suitable consolida¬ 
tion in trains should be provided for in a modern economically 
planned clearing yard into which all lines will feed, such yard to be 
so located as to minimize the territory that necessarily must be elec¬ 
trically operated at the start. 

7. The portion of the route to be placed in tunnels should be 
minimized not only because of their cost but also by reason of the 
unremunerative non-traffic producing character of the territory so 
traversed. 

8. The route should be so placed as to induce the flow of life 
giving traffic where it will do the most good and the least injury to 
the communities affected. 

Having these principles in mind we may next examine in detail 
the qualities of the rival plans, that of the City known as the Nar¬ 
rows tunnel plan, and that proposed by the Port Authority. 


16 


The Narrows Tunnel Plan 

lhe Narrows tunnel route, as laid out by the writer some ten years ago 
and placed by him at the disposal of the City, has its source in the north 
at its connection with the West Shore R. R. at Haworth, N. J., and passes 
thence in a westerly direction to the high land in the rear of Paterson; 
thence southerly along the rural valley of the Passaic River to a piercing 
of the Orange Mountains near Summit; thence continuing southerly and 
easterly through Scotch Plains, South Plainfield and Metuchen to a high 
level crossing of Arthur Kill between the bluffs that border that waterway 
in the vicinity of. Perth Amboy, N. J., and Tottenville, Staten Island; thence 
on an easy incline through the midst of the Borough of Richmond to a 
modern “ hump ” clearing yard at which cars from many origins may be 
classified and consolidated into full-sized trains for varying destinations; 
and thence beneath the Narrows to a connection with the Long Island 
Railroad and proposed Brooklyn marginal railway in Bay Ridge, Brooklym 
beyond which access to existing and proposed marginal railways, port de¬ 
velopments and other local facilities in the boroughs of Brooklyn, Queens, 
The Bronx and Manhattan, as well as direct connections to New England, 
is proposed via the New York Connecting Railroad and sundry connections. 

The character of construction is proposed to be modern in even- 
respect. On the steam operated section, which is the portion lying west 
of the proposed yard in Richmond, the maximum gradients are eight feet 
per mile against eastbound and sixteen feet per mile against westbound traffic 
in New Jersey, while within the limits of the city they descend with the 
eastbound movement and have a rise of twenty-one feet per mile against 
westbound traffic. 

East of the yard, where the intended electric operation makes steep 
rates of grade unobjectionable, the ruling gradient is 2 per cent, in both 
directions, this being the rate in successful use at other important electric 
installations in tunnels and elsewhere. Lighter gradients would involve 
greatly increased expenditures with incommensurate returns in the way of 
lessened operating costs. 

A double track main line is contemplated, free from grade crossings of 
every kind, with suitable provision for later expansion to four main tracks 
when warranted by increase of traffic. 

Special attention is paid to the needs of Staten Island. An industrial 
line is planned along the easterly bank of Arthur Kill, on the opposite side 
of which, in New Jersey, there is an object lesson in the beneficial effects 
of adequate railroad facilities. Above all, a direct connection is made with 
the north shore of the island, on which already exist great ocean piers and 
warehouses, notably those of the American Dock Co., the Pouch Terminal 
and the $25,000,000 development of the City itself. 

Just where the division line should lie between the portion of this system 
that should be constructed by the railroads or other outside interests and 


17 


the portion that should be constructed by the City is a matter for negotia¬ 
tion to determine. 

It is hoped that the railroads, through joint action, will organize a Metro¬ 
politan Terminal Railroad Association, somewhat similar to the one that 
has proven to be so successful at St. Louis, under the auspices of which the 
belt railway may be constructed in New Jersey and at other places to be 
agreed upon, and the City’s part of the route and certain existing railroad 
lines may be leased, all with a view to unified operation at actual cost, in the 
interest of both the railroads and the public. 

By planning in this manner all the principles above set forth are duly 
recognized. The proposed route involves no duplicate crossings of the 
bay, it avails itself of the City’s credit and it lies where adjoining public 
facilities may be created with mutual savings of several million dollars, 
as for instance, through the placing of rapid transit tubes in the same trench 
across the Narrows and through the placing of a vehicular roadway on the 
Arthur Kills viaduct, as a means of shortening the journey of automobiles 
many miles between New York and the New Jersey seacoast resorts. It 
avoids the congested regions of New Jersey, an item of the greatest import¬ 
ance to the future growth of both states and to the nation, from the stand¬ 
point of protection in time of war. Is crosses waterways above their heads 
of navigation in New Jersey, and with its anticipated burden of upwards of 
20,000,000 tons annually it passes high over or beneath harbor channels, 
thereby obviating grade crossings of water and rail traffic, as would be the 
case if drawbridges Were required. Its gradients on the steam operated 
part of the route, where this question is of moment, are very moderate. 
Its yard on Staten Island, being of ample length for tandem hump operation, 
serves all the purposes of economical classification and consolidation and 
makes unnecessary an extension of electric operation into the existing yards 
of the trunk lines. Its entire length is available for the industrial develop¬ 
ment of adjoining territory, except the comparatively • short distance in 
tunnel beneath the heights of northern Staten Island, over the Arthur Kill 
and under the Narrows. It offers means of trunk line passenger entry to 
the populous portions of the Metropolis, which so far have been neglected 
in that respect, and in that way promises relief from the embarrassment 
referred to by Mr. Rea. It does no injury to the New Jersey communities 
in diverting from their midst New York’s cross-water traffic, but on the 
contrary benefits them by removing a cause for growing congestion. Finally, 
in turning the arterial flow of New York’s commerce through Staten Island, 
it will change that potentially rich borough from a vermiform appendix to a 
healthy and prosperous section of Greater New York, a fact which is of 
vital moment to every citizen of the City and to the railroads. In fact, 
this bringing of vast virgin areas in both states within reach of the unified 
service of all the trunk lines of the port spells new life for the metropolitan 
area in its competition for world trade. 


18 


It will be asked if all these points are well taken why should there be 
any hesitation in proceeding at once with the building of the tunnel as 
directed by the Legislature. Statements have appeared in the press that the 
project is “impracticable”; that the intent of the law is that the tunnel 
shall'be treated as “ an interborough or local improvement ” and shall not 
invade the field reserved* to the bi-state port organization; that it will not 
stand the test of an economic analysis; that either new costly “ break-up ” 
yards will be required at the points of intersection of the proposed belt line 
with the connecting roads, or expensive “ back-haul ” of traffic will be 
required from the existing break-up yards to such points of intersection; 
and that the outer belt line is a round-about route in contrast with one that 
would cross the entire width of Upper Bay to the north of the Narrows. 

Regarding the charge of impracticability, the impression has been given 
in the press that this lies in the inability of the tunnel to handle both freight 
and rapid transit passenger traffic. This has never been claimed by the 
City’s engineers. What they do claim is that the project is entirely prac¬ 
ticable for doing just what the law says it shall do, namely, carry both freight 
and passengers. The Detroit River tunnel of the'Michigan Central Railroad 
has been doing this successfully for some ten years, and it has been done 
for some thirty years through the Sarnia tunnel of the Grand Trunk Rail¬ 
way. There is no good reason why it should not be done here, until the 
time may come in the future when growth of traffic may warrant the laying 
of additional self-supporting tubes. As to rapid transit passenger service, it 
has been expected that tubes therefor would be laid alongside those intended 
to be created under the present law, and the published plans of the City 
have so indicated. 

The charge that the Narrows tunnel project is intended to be a local 
improvement only is refuted in the act itself, as has already been explained 
in the chapter on “ Authority for Comprehensive Plan of Relief.” 

As to the charge, attributed in the press to the bi-state port organization, 

■ that the Narrows tunnel project is uneconomic, no figures have been pro¬ 
duced to substantiate it. If it is true of this admittedly necessary and 
authorized connection between Brooklyn and Staten Island, then it is true 
in a much greater degree if applied to the dual crossing of the Upper Bay by 
the tunnel of the Port Authority and the one ordered by the Legislature 
to be built by the City. Fortunately for the future of the Port and for the 
City—it is not true, as will be shown later. In this connection it has been 
repeatedly said in the press that the Port Authority plan “ calls for no 
expenditure of tax money, as it will be carried out altogether with private 
funds; whereas the City’s project can be executed only by taxing the 
people.” Can any statement be more misleading? The money for either 
plan must come from “ private funds ” and the interest thereon paid by the 
ultimate consumer, who is the real taxpayer. The real difference is that in 
the case of the Port Authority plan the interest to be paid by the taxpayer on 


19 


funds borrowed from the public through bankers will be at the compara¬ 
tively high rate usual with new enterprises, while with the City’s plan the 
taxpayers get the benefit of the City’s power to borrow money from the 
same public at a low rate. The difference will mean several million dollars 
to the community, including the railroads, and should be saved for their 
benefit and for the well-being of. the Port in its competition with existing 
and prospective rivals. 

As to the break-up yard statement, a few examples of yardless junc¬ 
tions will best illustrate its incorrectness. On the New York Central a 
yard of this nature was not found to be necessary at Depew, where trains 
made up many miles to the east, at DeWitt and East Rochester, split in two 
directions, one for Buffalo, via the main line, and the other for the West, 
via the Terminal Railway of Buffalo; nor was one found necessary at 
Hoffmans, on the Mohawk Division, where trains made up at distant DeWitt 
and destined for New England and the West Shore are diverted from the 
main line. 

Similarly, on the Lehigh Valley Railroad, westbound trains on the 
Buffalo Division are made up at Manchester, and on arrival at Depew 
Junction and Lehigh and Lake Erie Junction are diverted to Suspension 
Bridge or Tifft Farm or Buffalo, as the case may be, without the necessity 
for further classification at the junction points. This is also true on the 
same road at South Plainfield, where trains made up at Packerton are 
diverted to Perth Amboy or Oak Island, as the case may be, without the 
need for a break-up yard at the junction. 

What is the reason then that trains for points east of New York Harbor 
cannot be made up at divisional yards to the west and diverted over the 
proposed belt railway to the new clearing yard on Staten Island, where 
classification and consolidation would enable the traffic to continue in suitably 
composed trains for various destinations on Staten Island, Long Island, The 
Bronx, Manhattan and New England. It is done elsewhere and it can be 
done here. Of course there will be fragmentary train lots that will be set 
off on sidings at the connections and moved thence in “ pick-ups ” in the 
usual way, and there will be a comparatively small volume of back-haul 
freight moving between the Jersey inner zone and eastern points, but these 
in no manner affect the main question, namely, the feasibility of operating 
the Narrows tunnel route, coupled with the outer belt railway, without 
the need for creating extensive new break-up yards at intersections with 
the connecting lines. 

Now as to the alleged round-about nature of the Narrows tunnel route 
as compared with the Port Authority plan, it is true that the most northerly 
of the trunk lines, the West Shore R. R., has an excess haul of some 41 
miles and that the northerly group of roads as a whole has an added haul 
of 31.3 miles. However, per contra, the one of the southerly group which 
carries approximately one-half of the entire tonnage of both groups, the 


20 


Pennsylvania R. R., has a four mile shorter haul than the Port Authority 
plan, and the entire southerly group, carrying 80% of the tonnage of both 
groups, has a lesser haul to the extent of 2.7 miles. Taking the traffic of 
both groups as a whole the average haul by the Port Authority plan is 
approximately 28 miles and by the Narrows tunnel plan about 33 miles, a 
difference in favor of the former of 5 miles, or say 18%. At first glance 
this added haul may seem objectionable, but on reflection it will be realized 
that a circuitous route is not necessarily less desirable than a direct one 
if over-balancing advantages are thereby gained. The New York Central 
between New York and Buffalo- is 50% longer than an air line between 
those points and 11% longer than the D. L. & W. R. R., and yet in avoiding 
steep gradients and in seeking traffic producing regions it can hardly be 
termed an inferior route. The Lehigh and Lake Erie line of the Lehigh 
Valley R. R. into its Tifft Farm terminal is 150% longer than its former 
route via the Buffalo Creek R. R., and yet that company cannot be accused 
of improvidence in thus having built a round-about line to escape congestion 
on the old route. Many other illustrations could be given of the creation 
of round-about lines on which the added cost incident to longer train haul is 
far more than offset by outstanding advantages similar to those to be gained 
in this case, namely (a) escape from losses of time and money in passing 
through yards and congested regions on the existing routes and escape from 
other violations of the aforesaid fundamental principles of design, including 
congestion at the proposed bottle-neck at Greenville, and (b) reaping of vast 
future benefits through access to new traffic producing regions. It is to be 
expected in this case that the interests of all the roads will be pooled through 
a terminal association for joint operation, so that no one road will be 
penalized for its disabilities. The greatest good for the greatest number is 
the underlying thought of the City’s proposition. 

If the points as here outlined are well taken, as is believed to be the 
case, it is apparent that the Narrows tunnel plan accords with the principles 
that have been laid down as essential to a proper solution of the problem, 
and that it is free from the defects that have been charged against it from 
anonymous sources in the press. 

The Port Authority Plan 

The time has now come to inquire into the merits and demerits of the 
latest Port Authority plan, of which a short description will aid to an under¬ 
standing. In many, if not most respects, this plan is quite similar to the 
Narrows tunnel plan, except as to the manner of linking together the two 
sides of the harbor and the promptness with which the construction of the 
outer belt line shall be undertaken. 

The outer belt line of the Port Authority follows the Narrows tunnel 
route very closely between North Paterson and Summit, but differs there¬ 
from very materially at the northerly and southerly ends. At the former 


21 


point it diverges in a northeasterly direction to a terminus at Piermont 
on the Hudson River. At the south, near Summit, it splits in three direc¬ 
tions, one branch passing south to New Brunswick and Perth Amboy where 
neglected Staten Island is left in all its loneliness across Arthur Kill, 
another branch passing as a spur beneath Arthur Kill to Staten Island, 
and the third or main branch joining the so-called middle belt line, over 
which connection is had with the Lehigh Valley—Pennsylvania Railroad 
low-level drawbridge and trestle across Newark Bay, and thence by a tun¬ 
nel beneath what is practically the widest portion of Upper Bay from 
Greenville to junctions in Bay Ridge, Brooklyn similar to those proposed 
in the Narrows tunnel plan. According to the press the building of the 
outer belt line part of the Port Authority’s comprehensive plan is a matter 
to be determined in the dim and uncertain future. 

For immediate construction it is proposed to link the trunk line roads 
together by means of a so-called inner belt line along the Hackensack Mea¬ 
dows and easterly shore of Newark Bay, which, together with the above 
mentioned middle belt line and Newark Bay trestle, will bring the traffic 
of all of the roads from their existing break-up yards to the proposed 
Greenville-Brooklyn tunnel. Staten Island, pending the construction of the 
outer belt line at some uncertain date, is to be served by the existing heavily 
burdened Baltimore & Ohio Railroad stub line on which there is a single 
track drawbridge kept normally open for the unfettered passage of the 
Arthur Kill water traffic estimated at 30,000,000 tons annually. 

A study of these routes quickly shows that they are not planned 
in accordance with the aforesaid principles. 

First, fixed charges necessarily wiil be high (a) because the expensive 
tunnel crossing of Upper Bay will duplicate the cross-bay tunnel at the 
Narrows which the State has directed the City of New York to build and 
which someone claiming to speak in behalf of the Port Authority is quoted 
in the press as stating “ should be built regardless of whether it can be 
guaranteed of New Jersey traffic on a self-supporting basis,” thereby placing 
an unnecessary heavy burden of fixed charges on the commerce, of the 
port, (b) because annual interest charges for this public enterprise, of 
course paid in the first instance by the shipper and eventually by the ulti¬ 
mate consumer, will be higher by reason of the need for borrowing money 
directly through bankers at high rates with the usual commissions and dis¬ 
counts rather than through the City with its splendid credit, and (c) 
because the leaving of Staten Island on one side of the main route robs 
the project of the savings that would result (1) from the building of the 
proposed Staten Island-Brooklyn rapid transit tubes in the same trench 
used for the cross-harbor tunnel, and (2) from the utilization of the cross¬ 
ing of Arthur Kill for both railroad and vehicular traffic. 

Second, the anticipated tonnage, far exceeding 20,000,000 tons per 
annum, will pass through regions in New Jersey now congested with Some 


22 


75,000,000 tons of rail traffic annually as well as the passenger service of 
nine trunk lines, and promising to become increasingly so as time goes on, 
not only through the natural growth of long haul traffic but also through 
intensive local passenger and freight growth, neighboring great port develop¬ 
ments, and the proposed transshipment of Manhattan freight in the very 
region in which this inner belt line is proposed to run. On this point it is 
fitting to quote the bi-state organization’s recognition of the existence of this 
congestion, as set forth at page 23 of the report of 1920: “Its (the outer 
belt line) chief immediate purpose is to serve as a by-pass around the con¬ 
gestion nearer the waterfront.” Again in its report of 1921, at page 31, it 
refers to this line as “extending around the westerly limits of th$ Port Dis¬ 
trict beyond the congested section.” The Narrows tunnel route accomplishes 
this desirable purpose at the start, instead of waiting indefinitely and build¬ 
ing in the meantime an expensive route through the midst of this conges¬ 
tion to the mutual injury of the best interests of the communities on both 
sides of the harbor. 

Third, both the main route via Greenville and the B. & O. spur to 
Staten Island pass over navigable waterways by means of drawbridges, 
which will embarrass and therefore cause delay and increased cost of opera¬ 
tion to both rail and water traffic. Newark Bay waterborne tonnage is large, 
now reported to cause some 13,000 yearly openings of the drawbridge, with 
the surety of great increases as the plans of the Port Authority for the deep¬ 
ening of the Newark Bay, Passaic and Hackensack river channels to New¬ 
ark, Passaic, Paterson and other places are carried out. It is well to quote 
from page 345 of the 1920 report of the bi-state organization, in its reference 
to the L. V.-P. R. R. crossing, “ Here also tunnels should be built rather than 
bridges. The Commission assumes that any crossing of the bay as a part of 
the exterior belt line system will be by tunnel.” Also at page 30 of the same 
report the bbstate organization states “The Commission would further urge 
* * * that the Federal Government cooperate with the local authorities 

in providing 30 ft. entrance channels to Jamaica Bay and Newark Bay, and 
deep water channels within those bays. * * * The bridges over Newark 
Bay should be replaced, if feasible, by tunnels **.■*.” 

That the character of intersecting water traffic to be anticipated in the 
future will not be merely of the tug and barge variety but rather in large 
degree of the high-masted type, is shown by the following extracts from the 
bi-state organization’s report of 1920: 

“A project (Newark Bay) is now under way for deepening the 
channel to 30 ft. and widening it to 400 feet for the entire length 
of the Bay. * * * The city of Jersey City is planning develop¬ 

ments along similar lines along the east side of the Bay and'the lower 
Hackensack River * * * . (page 345). 

“ Dredging authorized by the Government will provide a channel 
20 ft. deep and 300 ft. wide up the Passaic River to the Nairn Lino- 


23 


leum Works, thence 16 ft. deep and 200 ft. wide to the bridge of the 
Greenwood Lake Branch of the Erie, thence 7-12 ft. deep and 150 
ft. wide through Belleville Bar, then 6 ft. and from 50 to 100 ft. wide 
to Passaic. * * *. The river should be dredged as soon as pos¬ 

sible to provide a continuous channel of 12 foot depth as far as Pas¬ 
saic, and ultimately this should be extended to Patterson, (page 346). 

“ The Arthur Kill is at present being deepened to 30 ft. by Gov¬ 
ernment dredging. The Kill carries a tonnage estimated at more 
than 30,000,000 tons per year and should be dredged to 30 feet in 
order to accommodate large freight ships serving the numerous in¬ 
dustries located or likely to be located along its shores.” (page 346). 

Thirty-foot channels are not alone intended for light draft craft. On 
top of all this, further embarrassment is to be expected from the concentra¬ 
tion of all of the cross-harbor rail traffic at the very point where greatly 
increased rail movement is to be expected in connection with the Lehigh 
Valley Railroad new Claremont terminal, the new Port of Newark, the new 
Droyer’s Point water terminal in Jersey City, and other projects which 
cluster about the place where the proposed “ inner belt line ” is to join the 
L. V.-P. R. R. trestle and the tunnel to Brooklyn. 

Certainly the former plan of the bi-state organization in this regard 
was preferable to the later one, which now contemplates drawbridge crossings 
of these two waterways already having a volume of traffic several times that 
of the Panama Canal. 

Fourth,,' the intended use of the Newark Bay trestle, unless it is to be 
replaced with a costly permanent structure, invites the same disaster that in 
the past has cut traffic in two for a long period due to a fire. 

Fifth, the westbound ruling gradient on the outer belt line is understood 
to be 32 feet per mile, in contrast with much lower rates on the Narrows 
tunnel route. 

Sixth, no provision appears to have been made for a clearing yard, 
unless it is intended to build one at Greenville or utilize that of the P. R. R. 
If none is intended, then there is no provision for consolidating partial 
train loads going from various origins to various destinations, with resultant 
costly operation in running light trains or else gross delays and congestion 
due to holding cars for full train loads, either of which is inadmissible. 
Moreover, in this case electric operation through the tunnel will have to 
be extended for long distances to the existing break-up yards of the various 
railroads, and into such yards, many of which are unadapted to so doing 
without radical changes. If a yard is intended at Greenville, then the short 
distance available for yard purposes between the tunnel summit and the 
place where the lines branch to the north and west forbids a modern yard 
layout and high cost of operation and congestion are sure to ensue. 

Seventh, the portions of the route that are carried on trestle or in 
tunnels, including the Upper Bay and Newark Bay crossings and the future 


24 


crossing under Arthur Kill to Staten Island, aggregate with approaches 
some 18 or 20 miles, which, of course, are unadapted to local industrial 
development. 

Eighth, the route leaves on one side of the main current of traffic the 
great county and borough of Richmond, with its existing deep-water ocean 
piers, having an anticipated tonnage of 21,000,000 annually, and the poten¬ 
tially important waterfront along the east bank of Arthur Kill, thereby 
depriving that promising-part of New York of the great benefits that result 
from an arterial flow of main line traffic through the midst of a community. 

No detail maps, profiles or estimates of cost of construction or opera¬ 
tion or revenue have been made public by the Port Authority, and, there¬ 
fore, the student of their plan is in more or less of a fog. Based on what 
has been published and with what are believed to be reasonable assumptions 
of what has so far been withheld from the public, it would appear that the 
Port Authority plan, so far as connections are concerned between the rail¬ 
roads in New Jersey and the boroughs of New York City, is gravely at 
fault in not having been based on fundamentals which are vital to the 
effective 1 solving of New York City’s cross-bay transportation problem. 

The Preferable Plan 

It has been shown that the Narrows tunnel plan is 'grounded on the 
principles that must have full recognition, if New York City is to profit 
to the full from an enterprise of such moment; and that the Port Authority 
plan, in failing to give them recognition will perpetuate handicaps which 
both sides of the harbor are seeking to eliminate. 

After all, the point at issue is not whether the Narrows tunnel or the 
Port Authority’s plan shall be selected, because it is generally recognized 
that the former in any event should be built. It then becomes a question 
whether (1) the Narrows tunnel with its outer belt line in New Jersey, or 
(2) the Narrows tunnel exclusive of the outer belt line plus the Port 
Authority’s cross-bay tunnel, inner belt line and Staten Island spur, shall 
be the adopted plan. In the former case a self contained system, in full 
accord with the principles heretofore mentioned, is obtained at a Post of 
say $85,000,000. In the other case the outer belt line portion of the City’s 
plan is rejected in favor of a duplicate tunnel and inner connections in New 
Jersey, and the total cost of the plan as a whole, with its many objection¬ 
able features, becomes say $120,000,000, this figure embracing the un- 
escapable Narrows tunnel terminating in Staten Island and the cross-bay 
tunnel, connections and improvement of existing facilities in New Jersey 
as to which it has been necessary to hazard a guess in the absence of any 
published estimates by the Port Authority. It will thus be seen that so 
far as can now be judged from available data the City’s plan promises a 
saving of say $35,000,000, coupled with observance of sound principles 
of design. 


25 


There can, apparently, be but one conclusion and that is in favor of 
the building of the Narrows tunnel as directed by the Legislature of the 
State of New York and in conjunction with it the railroad connections 
which are necessary for its self-support. 

IV 

ESTIMATED SAVINGS 

This question will be taken up with a view to determining the volume 
of traffic that may be expected annually to flow over the new route, the 
costs of movement of such traffic via both the present and the proposed 
routes, and the difference or saving applicable to the payment of additional 
fixed charges. 

The demonstrations will be made on the theory that all the New Jersey 
roads will join in the enterprise, including rail access to the Brooklyn water¬ 
front; and also on the basis set forth by the engineers of the carriers, which 
excludes the northern group of roads from participation in the project and 
excludes rail access to the Brooklyn waterfront. 

Volume of Traffic 

Based on data procured from the best available sources—the railroad 
companies and the Port Authority—it is fair to assume that the normal 
current tonnages exchanged between the New Jersey railroads and points 
on Long Island and beyond are as follows: 



• Southerly 


--— 1 


Group. 

Northerly 



(P. R. R„ 

Group. 



C. R. R. 

(E.R.R., D. L. 



of N.J., 

& W., W. S. 



B. & O. & 

R. R. & O. 


To and From. 

L. V. R. R.) 

&W. R.R.) 

Total. 

Interchanges via Bay Ridge (N. Y., N. H. & H. 

R. R. & L. I. R. R.). 

Brooklyn Waterfront: 

11,400,000 

940,000 

12,340,000 

Car Floatage (non-coal). 

2,370,000 

1,630,000 

4,000,000 

Lighterage (non-coal) .. 

440,000 

560,000 

1,000,000 

Lighterage (anthracite coal). 

3,015,000 

985,000 

4,000,000 

Total.. 

5,825,000 

3,175,000 

9,000,000 

Grand Total . 

17,225,000 

4,115,000 

21,340,000 


(For details and explanation see annexed Table “ A.”) 


It should be noted that these include nothing for future increases due 
to natural growth of population; nor for the Staten Island piers of the City, 
of the American Dock Company and of the Pouch Terminal, which in the 
aggregate are expected to handle 21,000,000 tons of water and rail traffic; 
nor for contemplated developments along the Staten Island side of Arthur 





















26 


Kill and at Jamaica and Flushing Bays and Hunts Point, and at the proposed 
new “ free port ” on the projected island in Upper Bay. Neither is any¬ 
thing included for interchanges between the railroads in New Jersey, which 
the carriers now feel will be nil; nor for industrial growth along the New 
Jersey belt line which will be peculiarly attractive for new plants by reason 
of the projected unified service of the nine trunk lines. The Brooklyn ton¬ 
nages have been investigated on the ground by Mr. Tuttle s representatives, 
who have interviewed shippers along the proposed route of the marginal 
railway and have found that as of 1914 or thereabouts, some 8,000,000 tons 
were shippable by an all-rail route, to which the addition of a reasonable 
increment would make the normal current tonnage far in excess of the 
9,000,000 figure that has been used. It had been hoped that the railroads 
would accept the invitation of the City to join in the investigation, but in 
this we have been disappointed. The evidence points conclusively to the 
almost unanimous wish of shippers in this region for direct rail facilities and 
to their intention to use them if furnished. It is to be assumed that before 
commitment of the City and railroads to this plan a suitable understanding 
will be reached with property owners and shippers along the route, to the 
end that claims for damages shall be waived and reasonable assurances 
given of shipments via the proposed rail route when completed. 

* . On the basis set forth by the engineers of the carriers the tonnages of 
the southern group of roads are as follows: 


To and From 


Interchanges . . 

Brooklyn Waterfront (Bush Terminal) 

Total.. 


Tons. 

11,400,000 

670,000 

12,070,000 


The number of cars handled, based on the current tonnages for all roads, 
are as follows: 


Number of Cars, 
Empty and Loaded. 


To and From. 

Southerly Northerly 
Group. Group. 

Total. 

Interchanges via Bay Ridge (N. Y., N, 
t T P "R ^ . 

, H. & H. R. R. 

. 729,000 

72,000 

801,000 

Brooklyn Waterfront: 

. 273,000 

187,000 

460,000 

Ucir noaiage ^nun-vuciiy. 

. 51,000 

64,000 

115,000 

Lighterage (non-coal) • • • . . 

120,000 

39,000 

159,000 


. 444,000 

290,000 

734,000 


. 1,173,000 

362,000 

1,535,000 

(For details and explanations 

see annexed Table “ A.”) 




















































27 


The figures of the carriers’ engineers for the southern group of roads 
were: 


Railroads. Cars. 


C. R. R. of N. J 

L. V. R. R. 

B. & O. R. R... 


Total, (average tons per car 12.3). 400,000 

P, R. R. (average tons per car 17.8). 400,000 


Total (average tons per car 15.1). .... 800.000 


184,100 

192,300 

23,600 


Costs and Savings per Car 

Costs per car by the present routes are predicated on information 
obtained mainly from the railroads and the Port Authority, supplemented 
by individual calculations in the few instances where that has been found 
to be necessary. They are based on prices for the year 1918 and cover the 
territory lying between the same points to which costs by the new route have 
been figured. Summarized they are as follows : 


Costs by Present Routes Per Car (Loaded and Empty). 


Southerly Group. Northerly Group. Both Groups. 

Total, ' Total, Total, 

Including Including Including 

Fixed Fixed Fixed 

Charges Charges Charges 

on on on 

Operation Present Operation Present Operation Present 
To and From Only. Routes. Only. Routes. Only. Routes. 



$ 

$ 

$ 

$ 

• X 

$ 

Bay Ridge . 

5.71 

7.03 

6.29 

8.40 

5.76 

7.15 

Brooklyn Waterfront— 

Car Floatage (non-coal)- 

7.75 

9.31 

8.44 

10.93 

8.03 

9.97 

Lighterage (non-coal) . 

14.08 

18.32 

14.04 

18.47 

14.06 

18.40 

Lighterage (anthracite coal) 

12.30 

14.82 

12.22 

14.95 

12.28 

14.85 

All destinations . 

7.23 

8.85 

9.41 

12.19 

7.74 

9.64 


Costs by the proposed route are calculated from data supplied by the 
railroad companies and from independent sources, the results being as 


follows: 


To and From 


Bay Ridge . 

Brooklyn Waterfront- 

Car Floatage (non-coal)- 

Lighterage (non-coal) . 

Lighterage (anthracite coal) 

All destinations . 


Costs by Proposed Route Per Car 
(Loaded and Empty). 


r~ 

Southerly Group. 

Northerly Group. 

\ 

Both Groups. 

$3.11 

$5.60 

$3.33 

4.75 

7.07 

5.69 

6.36 

8.34 

7.46 

6.39 

8.73 

6.96 

$3.97 

$7.18' 

$4.73 


































































28 


The differences or savings then become: 


Savings by Proposed Route Per Car (Loaded and Empty) - 

Southerly Group. Northerly Group. Both Groups. 

Total, Total, Total, 

Including Including Including 

Fixed Fixed Fixed 

Charges Charges Charges 


on on on 


To and From 

Operation Present Operation Present Operation 
Only. Routes. Only. Routes. Only. 

Present 

Routes. 

Bay Ridge .... 

$ 

,.. 2.60* 

$ 

3.92 

$ 

0.69 

$ 

2.80 

$ 

2.43 

$ 

3.82 

Brooklyn Waterfront— 

Car Floatage (non-coal) .. 

.. 3.00 

4.56 

1.37 

3.86 

2.34 

4.28 

Lighterage (non-coal) _ 

.. 7.72 

11.96 

5.70 

10.13 

6.60 

10.94 

Lighterage (anthracite coal) 5.91 

8.43 

3.49 

6.22 

5.32 

7.89 

All destinations . 

... 3.26 

4.88 

2.23 

5.01 

3.01 

4.92 


(For details and explanations of above three tables see annexed Table 
“ D ”) 


Estimated Annual Savings 

Applying the number of cars to the savings per car the results are: 


Southerly Group. Northerly Group. Both Groups. 


Total, Total, Total, 

Including Including Including 

Fixed Fixed Fixed 

Charges Charges Charges 

on on on 

Operation Present Operation Present Operation Present 
To and From Only. Routes. Only. Routes. Only. Routes. 


$ $ $ ^ ^ 

Bay Ridge . 1,899,370 2,859,320 49720 201,640 1,949,090 3,060,960 

Brooklyn Waterfront— 

Car Floatage (non-coal) .... 818,850 1,245,900 256,030 721,660 1,074,880 1,967,560 

Lighterage (non-coal) . 393,470 609,950 364,900 648,420 758,370 1,258,370 

Lighterage (coal) . 708,700 1,011,310 136,130 242,600 844,830 1,253,910 


Total . 1,921,020 2,867,160 757,060 1,612,680 2,678,080 4,479,840 


Grand Total . 3,820,390 5,726,480 806,780 1,814,320 4,627,170 7,540,800 


(For details and explanations of the preceding tables see annexed Table 
“ D.”) 

It will be seen that for all roads the estimated annual operating savings 
are $4,627,170; and $7,540,800, including operating costs, and also fixed 
charges on the present routes. 

For the southerly group only, excluding the Brooklyn waterfront, the 
estimated annual savings are $1,899,370 in operating expenses only, and 
$2,859,320, including both operating costs and fixed charges in contrast 














































29 


with $1,668,400 and $2,521,180 respectively as estimated by the carriers, the 
latter two sums, however, also including figures for a portion of the Bush 
Terminal tonnage. 

This discrepancy is in part due to the use by me of Port Authority 
costs of break-up yard and waterfront yard switching instead of the P. R. R. 
figures for the L. V. R. R. traffic; also a lower cost per car for tunnel opera¬ 
tion as is explained in annexed Table “C.” 

Next it is 1 necessary to determine what sum, under all the conditions, 
shall be adopted as fairly representing net savings. 

It will be argued that in case of diversion of traffic to the new line the 
present route savings in fixed charges will not be realizable in full. Taking 
the total railroad tonnage at 76,000,000 the portion that will be left to be 
handled in the New Jersey terminals after the 21,000,000 east-harbor ton¬ 
nage has been diverted, will be say 55,000,000 tons, the difference equalling 
say 40% of the latter figure. How long will it take for the natural accretion 
of traffic to replace the gap made by this diversion ? If the average rate of 
growth is taken at 5% annually, eight years will be required to make up the 
40%. As five years may be assumed as the period required to make the new 
project effective, the portion of the present route fixed charges assignable 
to the diverted traffic that may be counted upon as saved at the date of 
opening is say five-eighths of the full amount. The net annual savings, ex¬ 
clusive of car per diem, then become: 



Southerly 

Group. 

Both 

Groups. 

Operating savings, as above... 

$1,899,370 * 

$4,627,170 

§4 of present route fixed charges assignable to the diverted 
traffic. ... 

599,970 

1,821,020 


$2,499,340 

$6,448,190 

To these sums should be added an allowance for car 

per diem by reason 


of the elimination of delays incident to the passage of cars through the ex¬ 
isting waterfront yards on the two sides of the harbor, the cross-water light¬ 
erage, and archaic break-up yards where they now exist in New Jersey. A 
perusal of many letters of complaint of gross detentions of cars in Brooklyn 
and equally gross detentions to car floats at bridges on the New Jersey shore, 
indicates that the average detention that would be obviated by an all-rail route 
may be conservatively estimated at two days per car for the Brooklyn water¬ 
front and one-half day per car for the Bay Ridge traffic. At $1 per car per 
day this will amount to $400,000 for the southerly group and $1,868,000 for 
both groups. 

















30 


Net Savings as of 1926 

All of the sums so far given are based on normal current tonnages, 
which the carriers report have increased 25% or 3.6% per annum since 
1914. Allowing five years as the required period of construction 18% should 
be added to the foregoing amounts, thus: 

Southerly Both 

Group. Groups. 


Saving as above, based on normal current tonnages. $2,499,340 $6,448,190 

Savings in car per diem. 400,000 1,868,000 

Increment 1921-1926 . 521,881 1,496,914 


Net savings as of 1926. $3,421,221 $9,813,104 


It will be said (1) that car per diem is not now a matter of concern, as 
there is such a surplus of idle equipment, (2) that there is the possibility 
that N. Y. N. H. & H. interchange tonnages will be diverted to other routes 
so as not to pass through the New York district, (3) that some 500,000 tons 
of C. R. R. of N. J. traffic near the New Jersey waterfront to and from 
eastern points will require a backhaul, and (4) that the entire traffic of the 
latter company should be eliminated from consideration here because of the 
loss of profit that that company would experience on its haul between the 
proposed connection near Bound Brook and Jersey City. 

To the first point the reply is that while there is now a surplus of cars, 
that condition will be reversed when the revival of the country’s business 
arrives as prognosticated by General Atterbury. In fact cars will then be 
worth to the carriers much more than the per diem charge. 

As to the second point there is of course the contingency that the New 
Haven traffic in part will be diverted, but should that come about there is the 
compensating growth that is to be expected whenever there is a temporary 
lightening of the load in a territory that naturally lends itself to development, 
as for instance in the Jamaica Bay region, the proposed free port on the 
projected island in Upper Bay, the Arthur Kill waterfrontage and finally 
the ocean piers on Staten Island at which future water and rail traffic has 
been estimated at 21,00(3,000 tons annually. 

The third point is not a serious one as it involves an added annual cost 
of say $50,000 for added road haul, an amount that is inconsiderable in this 
case. 

As to the fourth point, it does not seem possible that any one of the 
carriers can afford to ignore any new' method of handling business if it is 
more efficient than old methods. This is particularly true where the public 
is expected to reap great advantages. 

On the last point it will be well to pause a moment. The speeding of 
freight movement, entirely apart from the savings to the carriers, will mean 
much to shippers in competition with other ports; the all-rail connections in 















31 


Brooklyn will mean pronounced savings to' the large concerns that will be 
accessible to side-track connections, and coal merchants will save much in 
degradation and handling of coal. From all this the ultimate consumer can¬ 
not fail to profit and of course the commerce of the port also. In a word, 
the savings are not confined to the carriers. 

It is realized that these figures are merely approximate, but they at 
least are based on the best obtainable information. It is hoped that those 
who may criticise them will offer substitute figures which can be shown to be 
predicated on more reliable data than are here used. 

V 

JUSTIFIABILITY OF THE PROJECT 

In passing upon this crux of the question it is necessary to consider cost 
of construction, the extent to which savings over present methods will 
make the project self-supporting at the start, and the promise of future 
returns and benefits in the interest of all concerned, carriers, shippers, the 
local community and the nation at large. 

Preliminary estimates of cost of construction are as follows: 


In New Jersey — 

Haworth to vicinity of Metuchen. $25,000,000 

Vicinity of Metuchen to Perth Amboy. 3,500,000 

Arthur Kill Viaduct.,. 3,500,000 


Total . $32,000,000 

In New York— 

Arthur Kill Viaduct. $2,000,000 

Arthur Kill to East End Richmond Yard. 8,000,000 

East End Richmond Yard to Bay Ridge. 43,000,000 


Total .. $53,000,000 


Brooklyn marginal railway (Maj. Sullivan’s estimate). $25,000,000 


Grand Total . $110,000,000 


Note—Cost of connection to Stapleton Piers is excluded as no tonnage therefor 
have been included in this demonstration. 

* 

For connections with the southerly group of roads only, and excluding 

the Brooklyn marginal railway, the preliminary estimates of cost are: 

$7,000,000 
52,000,000 


In New Jersey 
In New York. 


$59,000,000 



















32 


Surplus Over Fixed Charges On New Investment 


Using 6% in New York and 7% in New Jersey as conservative rates 
for fixed charges, embracing interest, taxes and amortization, the annual 
requirements are: 



Southerly- 

Group. 

Both 

Groups. 


$3,610,000 

$6,920,000 

In contrast with these requirements the aforesaid net annual 

3,421,221 

9,813,104 


—$188,779 

$2,893,104 




Briefly stated, the project applied only to the southerly group and ex¬ 
cluding the Brooklyn waterfront, falls little short of being self-supporting, 
while taken as a whole it is clearly better than self-supporting. 


Additional Advantages 

Even if returns from freight traffic should not be sufficient to meet 
this requirement there is the opportunity, which should not be lost sight of, 
to utilize the new route as a means of passenger entrance by the New 
Jersey roads into the heart of the population of some 3,500,000 inhabitants 
in the boroughs of Richmond, Brooklyn, Queens and The Bronx. The 
two great passenger terminals in Manhattan are becoming overtaxed. Why 
should not similar public conveniences be created in these other boroughs? 
Rapid transit routes, present and proposed, lend themselves to such a 
solution of the trunk line passenger problem of this gigantic city. Diffu¬ 
sion rather than concentration in this regard is highly desirable, and the 
project in question would lend itself admirably to such treatment. 

Very few new projects of magnitude thus lend themselves to an 
analysis of this kind. As a rule they rest solely on the vision and sound 
judgment of those to whom they owe their conception. 

For example, if I may be pardoned the personal allusion, the Grand 
Central Terminal owes its existence to a forecasting in 1902 of the brilliant 
possibilities that laid in the use of the overhead air rights then lying dormant 
in the face of prophesies that railroad hotels never had been nor would 
be successful, that office space, then figured as worth $1 per square foot, 
never would be rentable, and that the trend of street travel never could 
be diverted from Fifth Avenue to Madison Avenue. The actual results 
have far exceeded the favorable forecasts of that time. 

The same has been publicly said of the Pennsylvania Terminal, where 
“ mists of doubt and rocks of inertia ” failed to check the vision of the 
projectors of that great work. 

Then such examples as the original trans-continental lines further 





















33 


prove that power to pierce the future is even more weighty in accomplish* 
ment than analyses based on existing conditions. 

Happily in this case the analysis has the merit of reinforcing judgment 
as to whether or not the expenditure of so much new capital is justifiable. 
With the prospects so bright for the project becoming self-supporting from 
the start there would seem to be no question whatever as to the advisability 
of proceeding at once with its creation in the interest of this community’s 
future. Carriers, shippers, ultimate consumers, the city and the nation 
are equally concerned in the furnishing of this new avenue of commerce 
which will mean so much for all of them in reducing waste and delay, 
fostering industrial expansion and affording improved means of military 
protection. 

The City and State of New York want it, shippers want it, the ultimate 
consumer wants it. Then certainly the carriers should be willing at least 
to negotiate as to the terms on which they are willing to join in' its con¬ 
struction and operation. 


VI 

CONCLUSIONS 

In light of the situation as thus outlined it seems fair to conclude that: 

First, there is a crying need for relief from the present method of 
freight transportation between the trunk lines and the eastern shore of the 
Harbor of New York; 

Second, there are in existence two New York State laws which provide 
that this relief shall be given, one through the agency of the New York Port 
Authority which is directed to prepare and submit to the Legislature a com¬ 
prehensive plan for such relief, and the other through the instrumentality of 
the Board of Estimate and Apportionment of The City of New York, which 
is required to build a freight and passenger tunnel beneath the Narrows, 
between the Boroughs of Brooklyn and Richmond, and, in effect, to go forth 
in search of users from whom a rental may be obtained of sufficient size to 
make the project self supporting; 

Third, the preferable solution of the problem of affording relief under 
these two laws is that reached under the provisions of the Narrows Tunnel 
Act, because thereby (a) fixed charges will be minimized by reason of a low 
interest rate, savings at places where joint constructionoyieighboring public 
facilities is feasible and the first cost being somless than that 
involved under the Port Authority plan, (b) centers of congestion in New 
Jersey will be avoided, (c) grade crossings of water and rail traffic at draw¬ 
bridges will be obviated, (d) operation of trains over perishable trestles will 
be unnecessary, (e) gradients on the steam operated section are very mod¬ 
erate, (f) a clearing yard is provided at which cars from a variety of origins 
maybe classified and consolidated for a multitude of destinations, (g) inter- 


34 


ferences with the traffic development of adjoining territory are minimized, 
and (h) the life giving flow of main line traffic is led through the midst of 
the Borough of Richmond, where the best of service may be afforded the 
great ocean piers on its northern shore and along the eastern shore of Arthur 
Kill; 

Fourth , the estimated net savings on the proposed Narrows tunnel 
route, in conjunction with collateral advantages 1 and prospective benefits in 
the future are believed amply to justify its immediate construction in the joint 
interests of carriers, shippers and the general public; and 

Fifth , the carriers jointly should acquiesce in the .desire of The City of 
New York to negotiate with them as to the terms under which the Narrows 
tunnel plan may be made effective, bearing in mind that the figures used in 
this analysis are not looked upon as conclusive but merely as showing that 
the project is worthy of serious study in detail, under conditions to be 
agreed upon. 

Very truly yours, 

(Signed) William J. Wilgus, 

Consulting Engineer. 


35 


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lo 
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co t-h 

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co 

t-H 

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CM vd 

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CO 

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t—H 

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00 

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d“ d* 
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IN 


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r-H 

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T-H 

d* 

d- 00 

T-H 

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d-tN 

T-H 


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CO 


CM 

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LO 


vo 


d" 

co 

CM 


CO 

d- 

cm 














■H 

<D 

in 

<V 

<v 

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o, 

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be 

C 

• T-H 

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d> 

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Ut 

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m 

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be 

c 

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PL, 

5- 

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d 

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Ph 

d 

in 

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u 

Ph 

d 

in 

Ph 

l-H 

Ph 

d 

m 


o 


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Based on data appearing in Tables “B” and “C,” except totals which are derived from data in Table 
* Plus or minus. 

































































































ANNUAL SAVINGS 


41 


<v 

+-» 

o 

Pi 


c 

<u 

c/3 

<L> 

U. 

Ph 

C 

o 

co 

<L> 

OjO 

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a 

o; 

U 

4-> 

o 

H 


o3 

O 

H 


o 

<M 


C/5- 


oo- 


< 


o 

CM 


a3 

CM 


<V 

tn 

aJ 

P3 


*3 

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CO 

<U 

co 

ti- 

a 

o 

X 

W 

u 

cx 

O 


CO 

V 

bfl 

u 

a3 
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0 


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<u 

u 

Q 


<D 

co 

o3 

PQ 


03 

4-» 

o 

H 


o 

CM 


CM 


o3 

CM 




m- 


I =fr 






uo- 


G9- 


o o 

o 

oo 

o 


uq 

OCK 

s 

M" t-H 

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tN T-H 

m 

vo O 

vO 

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CO^H 

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o o 
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ss 

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m M- 
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CM O 

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t-H 

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OO 
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s 

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m 


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co in 
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Pi 

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oo 

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cd vo" 

vo 


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in co 

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in m" 
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t-h CM 

in" cm 


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o 1/1 

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p i 

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S . 

£p^ 

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6 

pi 

a 

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c 

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u 

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t-H 



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42 


<L> 

c 


o 

U 


W 

w 

hJ 

CQ 

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H 


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O 

4 -» 

3 

o 

& 


<L> 

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Vh 

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c /3 

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bo' 

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r c 5 

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H 

c 

o 

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<L> 

(Si 

d 

CQ 


d 

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o 

H 


o 

CM 


-O 

CM 


OJ 

CM 


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o 

c /3 

V 

C /3 

r-< 

s 

04 

x 

W 

ui 

a 

o 


(Si 

<u 

bo 

Jh 

C$ 

x: 

U 


U 

<D 

In 

Q 

c 

o 

~d 

V 

(Si 

d 

CQ 


d 

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H 


cj 

CM 


J 2 

CM 


d 

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(Si 

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d 

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u 

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aj 

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ON/—^ 

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CO ro 
xf 00 


OO 
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ro CO 
CXJ r—( 


o o 

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co 

xf"op 
cm ON 


o o 

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o o 
1/0 ix 

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co'rxT 

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0 

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IX NO 
-f CM 

§ 

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ON NO 

<XJ • 

CO 

• • 

• • 

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00 co' 
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3 

ro 

no" 00 

t-h lo 

no 00 












0 

0 

XT 

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CM CG 

qo. 

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CM 

cq^ 

0 0 

00 xf 

NO O 

640 

O 

lx 

o_ 

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r-H 

tx^ 

360 

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fxj O 
ON_CM^ 

O 

CXJ 

lx 

0 

CXJ 

r-H 

O 

8 

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NO'tX 

On" 

On" On" 


no" 

10 " 


cxj"cO" 

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go" 

On" 

cxj 

IX LO 

T—H 

On 0^^ 


LO 

10 


10 O 

Xf Tf 

xf 

NO 

NO 

NO 











xf 

cxj" 


00 

o 

M* 

in 

tx." 


On 

CO 

10 

CXI 


o 

CO 

co" 

10 

CM 


o 

NO 

LO 

ixT 

NO 

ON 


o 

NO 

ON 

o' 


CO 


o 

txT 

NO 


o 

CO 

OO 

3 

00 


o 

cO_ 

co" 

10 


o 

GO 

00 

IM 

O 


O 

ON 

O 

ON 


Based on number of cars shown in Table “A” multiplied by present and proposed costs per car and savings per car shown in 
























































































































43 


State of New York:. 


No. 108. Int. 108. 


In Senate, 

_ January 11,1922. 

Introduced by Mr. SMITH — read twice and ordered printed, 
and when printed to be committed to the Committee on Affairs 
of Cities. 


AN ACT 


To amend chapter seven hundred of the laws of nineteen hundred 
and twenty-one, entitled “ An act to authorize the board of esti¬ 
mate and apportionment of the city of New York to construct a 
tunnel for freight and passenger purposes under New York bay, 
between the boroughs of Richmond and Brooklyn, by improving 
and increasing the terminal facilities of the city of New York to 
maintain the supremacy of the port of New York,” generally. 

The People of the State of. Netv York , represented in Senate 
and Assembly, do enact as.follows: 

1 Section 1. Chapter seven hundred of the laws of nineteen hun- 

2 dred and twenty-one, entitled “An act to authorize the/ board of 

3 estimate and apportionment of the city of New York to construct 

4 a tunnel for freight and passenger purposes under New York bay, 

5 between the boroughs of Richmond and Brooklyn, by improving 

6 and increasing the terminal facilities of the city of New York to 

Explanation —Matter in italics is new; matter in brackets [ ] is old law to 
be omitted. 






44 


1 maintain the supremacy of the port of New York” is hereby 

2 amended to read as follows: 

3 Section 1. The board of estimate and apportionment of the 

4 city of New York shall within two years after the taking effect 

5 of this act begin the construction of a railroad tunnel under New 

6 York bay between the boroughs of Richmond and Brooklyn. Such 

7 tunnel connection shall be used for both freight and passenger 

8 purposes. [Such construction shall be undertaken and completed • 

9 in the same manner, by the same procedures and with the same 

10 regulations as are authorized by the charter of the city of New 

11 York for local improvements except that the entire expense shall 

12 be borne by the city of New.York.] And it is also authorized, 

13 at such time as it shall deem proper and expedient, to construct 

14 connections with existing railroads, piers, docks, ferries and float 

15 bridges; to acquire and construct the necessary buildings and 

16 other structures, and classification, switching, storage, and deliv- 

17 ery yards and appurtenances; and to purchase and instal any 

18 necessary equipment, including tracks, signals, interlocking 

19 plants, electric conductors, pumps, drains, telephones, rolling 

20 stock, and other railroad appliances. The said board may select 

21 the sites necessary for such tunnel and the terminals thereof and 

22 connections therewith and for connections with existing railroads, 
23. and may decide upon the capacity, method of construction and all 

24 other matters pertaining to the establishment of such tunnel and 

25 other connections as may be proposed, and adopt detailed plans 

26 and specifications for the construction and equipment thereof, 


1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 

21 

22 

23 

24 

25 

26 


45 


and execute all contracts incidental to the said construction and 
equipment. All lands, rights or easements, and other property, 
necessary therefor, when not acquired by agreement, shall be ac¬ 
quired by the city of New York in the manner provided by the 
charter of such city for the acquisition of lands for the [purpose 
of public use] improvement of the water-front, except, that if the 
right to cross, intersect or connect zvith any existing railroad 
purposes. [Such construction shall be undertaken and completed 
quired pursuant to section twenty-two of the railroad law. 

§ [1. pt.] 2. After the [such] construction of such tunnel 
and connections from tiipe to time, the city, acting by and through 
the said board of estimate and apportionment, may lease the same 
to such person, firm or corporation or to such persons, firms or 
corporations as may be determined upon by the board of estimate 
and apportionment upon such terms as may be agreed upon; or 
the city, may operate any such tunnel or connections through such 
official agency as may be determined by the said board of estimate 
and apportionment; or it may enter into a contract for the opera¬ 
tion or the partial operation of all or a part of such tunnel and 
connections [and thereafter the maintenance, operation and 
repair together with the collection of tolls and charges for the use 
of such tunnel shall be under the control and management of such 
lessee within the limitations and conditions of such lease. Such 
lease or any renewal thereof shall not be for a longer time than 
twenty-five years. Such lease shall reserve as rent or compen¬ 
sation to the city an amount at least sufficient to pay the interest 


46 


1 on bonds issued pursuant to this act and to amortize the principal 

2 thereof as such interest and principal become due. The board of 

3 estimate and apportionment shall have power to fix all charges 

4 and tolls for the use of such tunnel, but not less than sufficient 

4 

5 to pay the cost of the administration, maintenance and operation 

6 of such tunnel.] 

7 § 3. Stick lease or contract, if made for a period of more than 

8 ten years, shall reserve as rent or compensation to the city cm 

9 amount at least sufficient to pay the interest 'on so much of the 

10 bonds issued pursuant to this act as represents the cost of that 

11 portion of the improvement included in such lease or contract, 

12 and to amortise the principal thereof as such principal becomes 

13 due. No lease or contract shall be made until after the matter has 

14 been made the subject of a duly advertised public hearing nor 

15 for a greater period than ten years if that part of the improve- 

16 ment included in the lease or contract is not self sustaining. 

17 § 4. The powers conferred by this act shall not be limited or 

18 in any way controlled by the provisions of any other law, general, 

19 special, or local, except as in this act especially provided. 

20 §[2.] 5. For the purposes of this act the commissioners of the 

21 land office of the state of New York may, in their discretion, and 

22 upon such terms and conditions as the commissioners may deem 

23 proper, cede in fee simple by proper instruments in writing all 

24 the right, title and interest of the people of the state of New 

25 York in and to any lands under water necessary for the construc- 

26 tion of such tunnels and the terminals thereof. 


47 


1 § [3.] 6. The board of estimate and apportionment may issue 

2 bonds or corporate stock of the city of New York to meet the ex- 

3 pense of the construction of such tunnel, connections and all other 

4 facilities and appurtenances herein described, as well as the cost of 

5 acquiring any property to be taken for the improvements or provide 

6 funds therefor in any manner authorized by the charter of such 

7 city, but in addition to corporate stock or serial bonds nozv author¬ 
'd) ized by law to be issued by such city. Said bonds or corporate 
9 stock shall be payable at maturity out of a sinking fund to be 

10 established and maintained for that purpose out of the annual 

11 rentals or revenues of said improvements or any part thereof, 

12 arid such sum as it may be necessary to raise annually by taxes 

13 to supply any deficit in such rentals or revenues; but this pro- 

14 vision shall not diminish or affect the obligation of the city as 

15 debtor upon such bonds or any other right or remedy of any 

16 holder or owner of such bonds to collect the principal or interest 

17 thereof. 

18 §7. (1) The said board of estimate and apportionment of the 

19 city of New York shall be deemed to be the local authority in 

20 control of the streets, roads, bridges, viaducts, highways, avenues, 

21 boulevards, driveways, parks, parkways, docks, bulkheads, wharves, 

22 piers and public lands and waters within the city for all the pur- 

23 poses of this act; the consent of such board and the mayor shall be 

24 the only consent of local authority required hereunder . and the 

25 resolution of the said board of estimate and apportionment an* 

Senate, No. 108. 2 


26 


48 


1 thorizmg the construction of any such connecting railroad shall he 

2 deemed the consent of the local authorities of the city of New 

3 York. 

4 (2) The said hoard shall take the necessary steps to obtain, 

5 if possible, the said consents of the property owners along the line 

6 of the said route or routes. For the purposes of this act the 

7 value of the property hounded on that portion of any street or 

8 highways in, upon, over or under which it is proposed to construct 

9 or operate such railroad or railroads, or\ any part thereof, shall 

10 he ascertained and determined from the assessment roll of the 

11 city, confirmed, or completed last before the local authorities shall 

12 have given their consent, as above provided. If such consents of 

13 property owners cannot he obtained, the corporation counsel shall, 

14 upon the direction of said hoard, make x application in the name 

15 of the city to the appellate division of the supreme court in the 

16 department in which such railroad is to be constructed for the 

17 appointment of three commissioners to determine and report after 

18 due hearing whether such railroad ought to be constructed and 

19 operated. Three zveeks’ notice of such application shall be given 

20 by publication thereof once in each week in two daily nezvspapers 

21 published in the city. The newspapers in which said publication 

22 shall be made shall be designated by the appellate division of the 

23 supreme court to which such application is to be made on the 

24 application of the city without notice. 

25 (3) The said appellate division upon due proof of the pub- 

26 lication aforesaid, shall appoint three disinterested persons who 


1 

2 

3 

4 

5' 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 


49 


shall act as commissioners, and such commissioners within ten 
days after their appointment shall cause public notice to be given 
m the manner directed by the said appellate division of their 
first sitting, and may adjourn from time to time until all their 
business is completed. Vacancies in such commission may be 
filled by said appellate division after such notice to persons in- 

t 

terested as the appellate division may deem proper, and the evi¬ 
dence taken before as well as after such vacancy occurred shall 
be deemed to be properly before such board. The said commis¬ 
sioners shall determine after public hearing of all parties inter¬ 
ested whether such railroad ought to be constructed and operated 
and shall report the evidence taken to said appellate division, 
together with a report of their determination whether such road 
ought to be constructed and operated, which report, if in favor 
of the construction and operation of such road, shall, when con¬ 
firmed by said court, be taken in lieu of the consent of the prop¬ 
erty owners above mentioned. Such report shall be made within 
sixty days after the appointment of said commissioners, unless the 
said court, or a judge thereof, shall extend such time. 

This act shall take effect immediately. 


50 


State of New York:. 

No. 41. Int. 41. 

In Senate, 

January 9, 1922. 


Introduced by Mr. MEYER — read twice and ordered printed, 
and when printed to be committed to the Committee on 
Finance. 

AN ACT 

By which the state of New York agrees with the state of New 
Jersey upon the comprehensive plan for the development of 
the port of New York, pursuant to the compact authorized by 
the two states and signed April thirtieth, nineteen hundred and 
twenty-one, and consented to and approved by congress and the 
president of the United States, August twenty-third, nineteen 
hundred and twenty-one, and authorizing and empowering the 
port of New York authority to effectuate the same, and making 
an appropriation therefor. 

The People of the State of New York, represented in Senate 
and Assembly, do enact as follows: 

1 Whereas, The states of New York and New Jersey on the thir- 

2 tieth of April, nineteen hundred and twenty-one, pursuant to 

3 chapter one hundred and fifty-four of the laws of nineteen hun- 

4 dred and twenty-one of New York and chapter one hundred and 

5 fifty-one of the laws of nineteen hundred and twenty-one of New 

Explanation —Matter in italics is new; matter in brackets [ ] is old law to 
be omitted. 






1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 

21 

22 

23 

24 

25 

26 


51 


Jersey, did enter into a compact or agreement which pledged the 
two states to faithful cooperation in the future planning and 
development of the port of New York, and which, furthermore, 
created the port of New York district, as therein described, and 
the port of New York authority, a body politic and corporate, as 
an instrumentality or agency of the two states to effectuate such 
pledge of cooperation; 

And whereas, The said compact or agreement provides in article 
ten thereof that the “ legislatures of the two states, prior to the 
signing of this agreement, or thereafter as soon as may be prac¬ 
ticable, will adopt a plan or plans for the comprehensive develop¬ 
ment of the port of New York ”; 

Now, therefore (the state of New Jersey by appropriate legisla¬ 
tion concurring therein), the following be and it is hereby adopted 
as the comprehensive plan for the development of the port of New 
York under and pursuant to said compact or agreement: 

Section 1. Principles to govern the development: 

First. That terminal operations within the port district, so 
far as economically practicable, should be unified; 

Second. That there should be consolidation of shipments at 
proper classification points so as to eliminate duplication of 
effort, inefficient loading of equipment and realize reduction in 
expenses; 

Third. That there should be the; most direct routing of all 
commodities so as to avoid centers of congestion, conflicting cur¬ 
rents and long truck-hauls; 


52 


1 Fourth. That terminal stations established under the compre- 

2 hensive plan should be union stations, so far as practicable, 

3 Fifth. That the process of coordinating facilities should so 

4 far as practicable adapt existing facilities as integral parts of the 

5 new system, so as to avoid needless destruction of existing capital 

6 investment and reduce so far as may be possible the requirements 

7 for new capital; and endeavor should be made to obtain the con- 

8 sent of local municipalities within the port district for the coor- 

9 dination of their present and contemplated port and terminal 

10 facilities with the whole plan. 

11 Sixth. That freight from all railroads must be brought to all 

12 parts of the port wherever practicable without cars breaking bulk, 

13 and this, necessitates tunnel connection between New Jersey and 

14 Long Island, and tunnel or bridge connections between other parts 

15 of the port; 

16 Seventh. That there should be urged upon the federal authori- 

17 ties improvement of channels so as to give access for that type 

18 of waterborne commerce adapted to the various forms of develop- 

19 ment which the respective shorefronts and adjacent lands of the 

20 port would best lend themselves to; 

21 Eighth. That highways for motor truck traffic should be laid 

22 out so as to permit the most efficient inter-relation between 

23 terminals, piers and industrial establishments not equipped with 

24 railroad sidings and for the distribution of building materials 

25 and many other commodities which must be handled by trucks; 


53 


1 these highways to connect with existing or projected bridges, tun- 

2 nels and ferries. 

3 Ninth. That definite methods for prompt relief should be 

4 devised which can be applied for the better coordination and opera- 

5 tion of existing facilities while larger and more comprehensive 

6 plans for future development are being carried out. 

7 § 2. The bridges, tunnels and belt lines forming the compre- 

8 hensive plan are generally and in outline indicated on maps filed 

9 by the port of New York authority in the offices of the secretaries 

10 of the states of New York and New Jersey and are hereinafter 

11 described in outline. 

12 § 3. Tunnels and bridges to form part of the plan, (a) A 

13 tunnel or tunnels connecting the New Jersey shore and the Brook- 

14 lyn shore of New York to provide through line connection 

15 between the transcontinental railroads now having their terminals 

16 in New Jersey with the Long Island railroad and the New York 

17 connecting railroad on Long Island and with the New York 

18 Central and Hudson River railroad and the New York, New 

19 Haven and Hartford railroad in the Bronx, and to-provide con- 

20 tinuous transportation of freight between the Queens, Brooklyn 

21 and Bronx sections of the port to and from all parts of the west- 

22 erly section of the port, for all of the transcontinental railroads. 

23 (b) A bridge and/or tunnel across or under the Arthur Kill, 

24 and/or the existing bridge enlarged, to provide direct freight 

25 carriage between Ne\y Jersey and Staten Island. 


54 


1 (c) The location of all such tunnels or bridges to be at the 

' 2 shortest, most accessible and most economical points practicable, 

3 taking account of existing facilities now located within the port 

4 district and providing for and taking account of all reasonably 

5 foreseeable future growth in all parts of the district. 

6 § 4. Manhattan service. The island of Manhattan to be con- 

7 nected with New Jersey by bridge or tunnel, or both, and freight 

8 destined to and from Manhattan to be carried Underground, so 

9 far as practicable, by such system, automatic electric as herein- 

10 after described or otherwise, as will furnish the most expeditious. 

11 economical and practical transportation of freight, especially 

12 meat, produce, milk and other commodities comprising the daily 

13 needs of the people. Suitable markets, union inland terminal sta- 

14 tions and warehouses to be laid out at points most convenient to 

15 the homes and industries upon the island, the said system to be 

16 connected with all the trans-continental railroads terminating in 

17 New Jersey and by appropriate connection with the New York 

18 Central and Hudson River railroad, the New York, New Haven 

19 and Hart-ford and the Long Island railroads. 

20 § 5. Belt lines. The numbers hereinafter used correspond 

21 with the numbers which have been placed on the map of the com- 

22 prehensive plan to identify the various belt lines and marginal 

23 railroads. 

24 Number 1. Middle belt line. Connects New Jersey and 

25 Staten Island and the railroads on the westerly side of the port 

26 Senate, No. 41. 2 


55 


1 with Brooklyn, Queens* the Bronx and the railroads on the 

2 easterly side of the port. Connects with the New York Central 

3 railroad in the Bronx; with the New York, New Haven and Hart- 

4 ford railroad in the Bronx; with the Long Island railroad in 

5 Queens and Brooklyn; with the Baltimore and Ohio railroad near 

6 Elizabethport and in Staten Island ; with the Central Railroad 

7 Company of New Jersey at Elizabethport and at points in 

8 Newark and Jersey City; with the Pennsylvania railroad in 

9 Newark and Jersey City; with the Lehigh Valley railroad 

10 in Newark and Jersey City; with the Delaware, Lackawanna and 

11 Western railroad in Jersey City and the Secaucus meadows; with 

12 the Erie railroad in Jersey City and the Secaucus meadows; with 

13 the New York, Susquehanna and Western in West Hoboken; 

14 with the; New York, Ontario and Western and the West Shore 

15 railroads on the westerly side of the Palisades above the Wee- 

16 hawken tunnel. 

17 ' The route of the middle belt line as shown, on said map is in 

18 general as follows: Commencing at the Hudson river at Spuy- 

19 ten Duyvil running easterly and southerly generally along the 

20 easterly side of the Harlerii river, utilizing existing lines so far 

21 •> as .practicable and improving and adding where necessary, to a 

22 connection with Hell Gate bridge and the New Haven railroad, 

23 a distance of approximately seven miles; thence continuing in 

24 a general southerly direction, utilizing existing lines and improv- 

25 ing and adding where necessary, to a point near Bay Ridge, a 

26 distance of approximately eighteen and one-half miles; thence 


bt 

1 by a new tunnel under New York bay in a northwesterly direc- 

2 tion to a portal in Jersey City or Bayonne, a distance of approxi- 

3 mately five miles, to a connection with the tracks of the Pennsyl- 

4 vania and Lehigh Valley railroads; thence in a generally 

5 northerly direction along the easterly side of Newark bay and 

6 the Hackensack river at the westerly foot of the Palisades, utiliz- 

7 ing existing tracks and improving and adding where necessary, 

8 making connections with the Jersey Central, Pennsylvania, 

9 Lehigh Valley, Delaware, Lackawanna and Western, Erie, New 

10 York, Susquehanna and Western, New York, Ontario and 

11 Western, and West Shore railroads, a distance of approximately 

12 ten miles. From the westerly portal of the Bay tunnel and from 

13 the line along the easterly side of Newark bay by the bridges of 

14 the Central railroad of New Jersey (crossing the Hackensack 

15 and Passaic rivers) and of the Pennsylvania and Lehigh Valley 

16 railroads (crossing Newark bay) to the line of the Central rail- 

17 road of New Jersey running along the westerly side of Newark 

18 bay and thence southerly along this line to a connection with the 

19 Baltimore and Ohio railroad south of Elizabethport utilizing 

20 existing lines so far as practicable and improving and adding. 

21 where necessary, a distance of approximately twelve miles; thence 

22 in an easterly direction crossing the Arthur kill, utilizing existing 

23 lines so far as practicable and improving and adding where neces- 

24 sary, along the northerly and easterly shores of Staten Island to 

25 the new city piers and to a connection, if the city of New York 

26 consent thereto, with the tunnel under the Narrows to Brooklyn 


57 


1 provided for under chapter seven hundred of the laws of the 

2 state of New York for nineteen hundred and twenty-one. 

3 Number 2. A marginal railroad to the Bronx extending along 

4 the shore of the East river and Westchester creek connecting 

5 with the middle belt line (number one), and with the New 

6 York, New Haven and Hartford railroad in the vicinity of West- 

7 Chester. 

8 Number 3. A marginal railroad in Queens and Brooklyn ex- 

9 tending along Flushing creek, Flushing bay, the East river and 

10 the upper New York bay. Connects with the middle belt line 

11 (number one), by lines number four, number five, number six 

12 and directly at the southerly end at Bay Ridge. Existing lines 

13 to be utilized and improved and added to and new lines built 

14 where lines do not now exist. 

15 Number 4. An existing line to be improved and added to 

16 where necessary. Connects the middle belt line (number one), 

17 with the marginal railroad number three near its northeasterly 

18 end. 

19 Number 5. An existing line to be improved and added to 

20 where necessary. Connects the middle belt line (number one), 

21 with the marginal railroad number three in Long Island City. 

22 Number 6. Connects the middle belt line (number one), with 

23 the marginal railroad number three in the Greenpoint section of 

24 Brooklyn. The existing portion to be improved and added to 

25 where necessary. 


1 

2 

3 

4 

5 

6 

7 

8 

9 

10 

11 

12 

13 

14 

15 

16 

17 

18 

19 

20 

21 

22 

23 

24 

25 

26 

27 


58 


Number 7. A marginal railroad surrounding the northerly 
and westerly shores of Jamaica bay. A new line. Connects 
with the middle belt line (number one). 

Number 8. An existing line, to be improved and added to 
where necessary. Extends along the southeasterly shore of Staten 
Island. Connects with middle belt line (number one). 

Number 9. A marginal railroad extending along the westerly 
shore of Staten Island and a branch connection with number 
eight. Connects with the middle belt line (number one), and 
with a branch from the outer belt line (number fifteen). 

Number 10. A line made up mainly of existing lines, to be 
improved and added to where necessary. Connects with the mid¬ 
dle belt line (number one) by way of marginal railroad number 
eleven. Extends along the southerly shore of Raritan bay and 
through the territory south of the Raritan river reaching New 
Brunswick. 

Number 11. A marginal railroad extending from a connec¬ 
tion with the proposed outer belt line (number fifteen) near 
New Brunswick along the northerly shore of the Raritan river 
to Perth Amboy, thence northerly along the westerly side of the 
Arthur Kill to a connection with the middle belt line (number 
one) south of Elizabethport. The portion of. this line which 
exists to be improved and added to where necessary. 

Number 12. A marginal railroad .extending along the east¬ 
erly shore of Newark bay and the Hackensack river and con¬ 
nects with the middle belt line (number one). A new line. 

Senate, No. 41. 


59 


1 Number 13. A marginal railroad extending along the 

2 westerly side of the Hudson river and the Upper New York bay. 

3 Made up mainly of existing lines—the Erie Terminals, Jersey 

4 Junction, Hoboken Shore, and National Docks railroads. To be 

5 improved and added to where necessary. To be connected with 
. 6 middle belt line (number one)'. 

Number 14. A marginal railroad connecting with the mid- 

8 die belt line (number one), and extending through the Hacken- 

9 sack and Secaucus meadows. 

10 Number 15. An outer belt .line, extending around the 

11 westerly limits of the port district beyond the congested section. 

12 Northerly terminus on the Hudson river at Piermont. Connects 
J3 by marginal railroads at the southerly end with the harbor waters 

14 below the congested section; By spurs connects with the mid- 

15 die belt line (number one) on the westerly shore of Newark bay 

16 and with the marginal railroad on the westerly shore of Staten 

17 Island (number nine). 

18 Number 16. The automatic electric system for serving 

19 Manhattan Island. Its yards to connect with the middle belt 

20 line and with all the railroads of the port district. A standard 

21 gauge underground railroad deep enough in Manhattan to per- 

22 mit of two levels of rapid transit sub ways, to pass over it. Stand- 

23 ard railroad cars to be brought through-to Manhattan terminals 

24 for perishables and food products in refrigerator cars. Cars with 

25 merchandise freight to be stopped at its yards. Freight from 

26 standard cars to be transferred onto wheeled containers, thence 


60 


1 to special electrically propelled cars which will bear it to Man- 

2 hattan. Freight to be kept on wheels between the door of the 

3 standard freight car at the transfer point and the tail board of 

4 the truck at the Manhattan terminal or the store door as may be 

5 elected by the shipper or consignee, eliminating extra handling. 

6 Union terminal stations to be located on Manhattan in zones 

7 as far as practicable of equal trucking distance, as to pickups and 

8 deliveries, to be served by this system. Terminals to contain 

9 storage space and space for other facilities. The system to bring 

10 all the railroads of the port to Manhattan. 

11 § 6. The determination of the exact location, system and char- 

12 acter of each of the said tunnels, bridges, belt lines, approaches, 

13 classification yards, warehouses, terminals or other improvements 

14 shall be made by the port authority after public hearings and 

15 further study, but in general the location thereof shall be as in- 

16 dicated upon said map, and as herein described. 

17 § 7. The right to add to, modify or change any part of the 

18 foregoing comprehensive plan is reserved by each state, with the 

19 concurrence of the other. 

20 § 8. The port of New York authority is hereby authorized 

21 and directed to proceed with the development of the port of New 
•22 York in accordance with said comprehensive plan as rapidly as 

23 may be economically practicable and is hereby vested with all 

24 necessary and appropriate powers not inconsistent with the con- 

25 stitution of the United States or of either state, to effectuate the 

26 same, except the power to levy taxes or assessments. It shall 


61 


1 request the congress of the United States to make such appropri- 

2 ations for deepening and .widening channels and to make such 

3 grants of power as will enable the said plan to be effectuated. It 

4 shall have power to apply to all federal agencies, including the 

5 interstate commerce commission, the war department, and the 

6 United States shipping board, for suitable assistance in carrying 

7 out said plan. It shall co-operate with the state highway com- 

8 missioners of each state so that trunk line highways as and when 

9 laid out by each state shall fit in with said comprehensive plan. 

10 It shall render such advise, suggestion and assistance to all 

11 municipal officials as will permit all local and municipal port and 

12 harbor improvements, so far as practicable, to fit in with said 

13 plan. All municipalities within the district are hereby author- 

14 ized and empowered to co-operate in the effectuation of said plan, 

15 and are hereby vested with such powers as may be appropriate 

16 or necessary so to co-operate. The bonds or other securities 

17 issued by the port authority shall at all times be free from taxa- 

18 tion by either state. The port authority shall be regarded as the 

19 municipal corporate instrumentality of the two states for the 

20 purpose of developing the port and effectuating the pledge of the 

21 states in the said compact, but it shall have no power to pledge 

22 the credit of either state or to impose any obligation upon either 

23 state, or upon any municipality, except as and when such power 

24 is expressly granted by statute, or the consent by any such munici- 

25 pality is given. 


1 

2 

3 

4 

5 

6 

7 

8 

9 

10 


62 


§ 9. The sum of one hundred thousand dollars ($100,000), or 
so much thereof as may be necessary, is hereby appropriated out 
of any moneys in the state treasury not otherwise appropriated, 
for the expenses of the port authority. The moneys hereby appro¬ 
priated shall be paid out by the state treasurer on the warrant 
of the comptroller upon vouchers audited by the chairman of 
the port authority. 

§ 10. All acts and parts of acts inconsistent herewith are hereby 
repealed, and this act shall take effect immediately. 

Senate, No. 41. 4 



M. B. Brown Printing & Binding Co., 
New York. 



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